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Pumicelands Rural Fire Authority
Fire Administration Plan
(Part A of the overall Pumicelands RFA Fire Plan)
2015-17
Pumicelands Rural Fire Authority Fire Plan – 30 October 2015 2
Sections
1. CONTEXT
2. READINESS
3. REDUCTION
4. RECOVERY
This Fire Administration Plan (Part A) is one of the two parts of the overall Pumicelands RFA Fire Plan. It generally deals with Operational Context, Reduction, Readiness and Recovery operating procedures.
The Fire Response Plan (Part B) provides stakeholder organisations across all Zones with the main checklists, forms, outline of procedures and firefighting resources contacts necessary to respond to a fire emergency.
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1. CONTEXT
CONTENTS PAGE
1.1 The Pumicelands RFA Fire Plan 7
1.2 Pumicelands “District” and “Authority” 7
1.3 Map of Pumicelands 8
1.4 How Pumicelands RFA is Funded 9
1.5 Pumicelands RFA’s Legislative Mandate 10
1.6 Pumicelands RFA General Policies 10
1.7 Pumicelands RFA Safety and Health Policy 11
1.8 The Pumicelands RFA Constitution 14
Zone Arrangements in the PRFA Constitution 1.9 18 Inclusive of Operating Rules
1.10 Other Agreements 20
1.11 Specially Protected Areas 21
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2. READINESS
CONTENTS PAGE
2.1 General Pumicelands RFA Readiness Policy 21
Pumicelands RFA Policy Regarding Stakeholder 2.2 21 Resourcing Levels
2.3 Fire Detection Processes 22
2.4 Procedures for Monitoring Fire Weather Index 23
2.5 Outline of the Fire Weather Index System 25
Procedures for Determining Levels of Readiness 2.6 26 and Response from Weather Stations
2.7 BUI Trigger Points to Guide Readiness Levels 27
2.8 Overview of Forestry Zone Readiness Levels 30
2.9 Other Readiness Procedures 31
2.10 Training Objectives 34
2.11 NRFA Minimum Training Standard and Grant Funding 34
2.12 Objective of Training for Safe and Effective Operations 35
2.13 Target Numbers of Personnel to be Trained by Zone 35
2.14 A Single Pumicelands RFA Training Database 36
2.15 Quality Training at Minimum Costs 37
2.16 Fire Control Documents and Maps 37
2.17 Pumicelands RFA VHF Radio Communications 38
2.18 Protective Clothing for Firefighting Operations 38
2.19 Firefighting Equipment 39
2.20 Fire Infrastructure 42
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3. REDUCTION
CONTENTS PAGE
Pumicelands RFA Constitution Inclusive 3.1 44 of Operating Rules Relating to Reduction
3.2 General Pumicelands RFA Fire Reduction Strategy 44
Pumicelands RFA General 3.3 44 Monitoring of Weather Conditions
3.4 Pumicelands RFA Use of Wildfire Threat Analysis 46
3.5 Pumicelands RFA Policy for the Issue of Fire Permits 46
3.6 Pumicelands RFA Policy for DOC Authorised Campfires 48
Policy of Identification of Hazardous 3.7 48 Buildings in Rural Areas
3.8 Pumicelands RFA Fire Signage Policy 49
3.9 Firebreak Guidelines 49
Pumicelands RFA Policy for Public Entry to 3.10 50 Commercial Forests
3.11 Pumiceland RFA Policy for Forest Operations 50
Pumiceland RFA Policy for the Management of 3.12 53 Tree Harvesting Debris and Residues at Log Landings Pumicelands RFA Policy for the Management 3.13 54 of Sawdust, Bark and Refuse Dump Areas
3.14 PRFA Policy for the Management of Ash Refuse Dumps 54
3.15 PRFA Policy for the Management of Fire Pits 55
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4. RECOVERY
CONTENTS PAGE
4.1 The Constitution Regarding Fire Suppression Costs 56
4.2 Records of Fires 57
4.3 Fire Investigation 57
4.4 Post Fire Investigation 58
4.5 Fire Debriefs and Operational Reviews 59
4.6 Cost Recovery and Prosecution 59
4.7 Fire Site Rehabilitation Procedures 59
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1. CONTEXT
1.1 The Pumicelands RFA Fire Plan
This Fire Plan is the guiding document to enable the management of rural fires by the Territorial Authorities, Department of Conservation and large commercial forest companies that collectively have jurisdiction over the Central North Island. The Fire Plan is designed to comply with regulation 39 of the Forest and Rural Fires Regulations 2005 (the Regulations).
The Pumicelands RFA Fire Plan consists of five sections divided into two parts:
PART A – Fire Administration 1.Context General description of Pumicelands RFA, underlying legislation and policies.
2.Reduction Measures to prevent and reduce the threat from rural fires.
3.Readiness Measures and standards required by stakeholders to enable the safe and effective response to rural fires.
4.Recovery Actions required after a rural fire. PART B – Fire Response 5.Response An emergency action plan and resource directory to enable stakeholders to safely and effectively respond to fires.
1.2 Pumicelands “District” and “Authority”
Pumicelands Rural Fire District and Authority, as it now exists, was constituted as a legal entity by notice 2015-au3609 in the New Zealand Gazette No. 68 - page 145, 18 June 2015, pursuant to sections 4(1) and 8(1) of the Forest and Rural Fires Act 1977 (the Act).
The District: A map of the District is shown on the following page. In summary, the District consists of parcels of land totalling approximately 2.35 million hectares in the Central North Island of New Zealand under the jurisdiction of the following stakeholders who contribute financially to Pumicelands RFA:
Territorial Authorities Tauranga CC, Western Bay of Plenty DC, Kawerau DC, (TAs) Whakatane DC, Opotiki DC, South Waikato DC, Rotorua DC, Taupo DC and Dept. of Internal Affairs (for offshore Islands).
Commercial Forestry Hancock Forest Management Tiaki, Hancock Forest Companies (Forestry) Management Taumata, Kaingaroa Timberlands Management Ltd, PF Olsen Ltd, NZ Forest Managers, Crown Forestry, Lake Taupo & Rotoira Forest Trusts.
Department of Includes all reserves and conservation lands within the Conservation (DOC) above listed TAs and Forestry plus all of the Kaimai-Mamaku Forest Park, Ureweras, Raukumara FP, Tongariro National Park, Erua Forest, Tongariro Forest and Kaimanawa FP.
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1.3 Map of Pumicelands
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The 2.35 million hectare District consists of an estimated: 0.80 million hectares of agricultural lands, 1.05 million hectares conservation lands and 0.50 million hectares of commercial forestry. There are currently an estimated 700 Pumicelands firefighting personnel located around 43 rural fire depots of various sizes belonging to the various stakeholders and associated volunteer groups.
Major transport routes include State Highways 1, 2, 5, 29, 30, 32, 33, 36, 38, 41, 46 and 47, and rail links such as the main trunk line and the freight/log line between Murupara and Kawerau. The district is well serviced by electrical and natural gas supply lines which originate from outside of the region. There are a number of areas of special note in terms of fire threat within the District. These include: residential villages, ski resorts and other recreational areas, prisons, industrial sites, national parks, offshore island reserves and coastal areas, orchards and large packhouses, and transport and distribution networks.
The Pumicelands Rural Fire District excludes larger townships where Urban Fire Districts exist. Those areas come under the jurisdiction of the NZ Fire Service.
The Authority: A seven member governance Committee, as defined in the gazette notice, is the “Authority”. Under s 8 (2) of the Act the Authority is recognised as “a body corporate, having (subject to the right of the National rural Fire Authority to dissolve that body by notice in the Gazette), perpetual succession and a common seal, and being capable of holding real and personal property and of doing and suffering all the things that bodies corporate may do and suffer:…”
The Principal Rural Fire Officer (PRFO), Deputy Principal Rural Fire Officers (DPRFOs) and Rural Fire Officers (RFOs) are all accountable to the Committee. The PRFO (who also functions as Chief Executive Officer), two Deputies to the PRFO (who are both Operations coordinators and DPRFOs) and the Administration Officer are employees of the Authority. The eight Zone Managers and Sector Mangers for Opotiki and each of the Sectors of the Plateau Zone are all DPRFOs.
Membership of the Committees is made up as follows:
Two members appointed by the CEOs of the Territorial Authorities Two members appointed by the NZ Forest Owners Association One member appointed by the Director General of the Department of Conservation One person appointed by the NZ Fire Service National Commander One independent member appointed by the other members of the Committee.
1.4 How Pumicelands RFA is Funded
Contributing Stakeholders: These are the organisations who finance the administration of the Authority and except for the Independent Committee Member, from which the members of the Committee are drawn. This is a key understanding in the functioning of Pumicelands RFA. A Contributing Stakeholder can be one of two things:
1. A signatory of the Memorandum of Understanding signed in July 2014 to proceed with establishing Pumicelands. These signatories are all those organisations shown in the table above (from DOC, Forestry and TA’s) plus the NZ Fire Service.
2. An individual or agency which meets any of the following criteria: (a) the individual or agency pays a Contribution or Levy of at least $8,000 in cash; or (b) the individual or agency makes an in-kind administration contribution of at least $20,000; or (c) the individual or agency makes a combination of cash and in-kind contributions where the
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cash contribution plus 50% of the total value of in-kind contributions is equal to at least $10,000.
Administration vs Operating Funding: The Contributing Stakeholders fund Pumicelands RFA in two ways:
1. Administration Costs: These are primarily the costs of the salaries, accommodation and vehicles of the four direct employees of the Authority (the Principal Rural Fire Officer, two Operations Co-ordinators and Administration Officer). This funding comes from each Contributing Stakeholder as lump sum amounts agreed in the signing of the MOU to be paid per annum for the five year term July 2015 - June 2020.
2. Operating Costs: Pumicelands RFA is divided into eight zones and the operational costs of maintaining resources and carrying out reduction, readiness, response and recovery are the collective responsibility of the combination of Contributing Stakeholders in each zone.
1.5 Pumicelands RFA’s Legislative Mandate
Pumicelands RFA has a statutory obligation to carry out the functions of a Rural Fire Authority as set out within the Forest and Rural Fires Act and Regulations. The Authority further recognises that it has obligations under the Fire Service Act 1975 and is also particularly mindful of its obligations under the Health and Safety in Employment Act 1992 (to be replaced by the Health and Safety at Work Act in April 2016).
The Forest and Rural Fires Act prescribes the law relating to: …the safeguarding of life and property by the prevention, detection, control, restriction, suppression and extinction of fire in forest and rural areas and other areas of vegetation”. The Act: establishes Rural Fire Authorities and sets out their duties, powers, and functions; requires that each RFA must promote and carry out appropriate fire control measures within its district and in the interests of public safety; and identifies the powers and functions of Principal Rural Fire Officers and Rural Fire Officers.
One aspect that can be confusing is the Authority’s environmental function. Like any other organisation Pumicelands RFA is required to act lawfully in regards to the Resource Management Act 1991, regional and district resource management plans and local council bylaws. However the Authority does not have a specific environmental mandate under legislation. For instance, if life and property is safeguarded, the Authority cannot withhold issuing a permit to burn for environmental or smoke nuisance reasons.
1.6 Pumicelands RFA’s General Policies
In order to meet its statutory obligations Pumicelands RFA has adopted a number of general policies and procedures, which are documented within this Fire Plan. In general it is Pumicelands RFA policy to:
(a) Uphold Legislation by being consistent with, and give full effect to, the statutory requirements of: the Forest and Rural Fires Act 1977 and Regulations 2005, the Fire Service Act 1975, and the current Health and Safety legislation.
(b) Meet National Standards as set down by the National Rural Fire Authority.
(c) Maintain a Rural Fire Plan to deal with all matters relating to rural fire emergencies within those areas under its jurisdiction. Pumicelands Rural Fire Authority Fire Plan – 30 October 2015 11
(d) Maintain a weather monitoring and warning system that will include:
(i) The observation of weather and other conditions, and the assessment of fire hazard; (ii) The giving of warnings of the imminence of fire hazard conditions; and (iii) The giving of any information available in relation to fire hazard conditions.
(e) Implement fire control measures including:
(i) The prevention, detection, control, restriction, suppression, and extinction of fire; and (ii) The safeguarding of life and property from damage and risk of damage by or in relation to fire; and (iii) All measures conducive to or intended to further or effect such prevention, detection, control, restriction, suppression, extinction, or safeguarding.
(f) Carry out core generic training to national standards as a minimum for all rural firefighting personnel (includes staff, contractors and volunteers). (A detailed training policy is shown in the section on “Readiness”.)
(g) Establish and maintain good relationships with the NZ Fire Service, National Rural Fire Authority, and contributing stakeholders
(h) Maintain an effective and efficient rural firefighting capacity in partnership with the NZ Fire Service and contributing stakeholders throughout the District.
(i) Operate a cost-effective service, working to a budgeted expenditure on an annual basis and endeavouring to recover fire suppression costs to reduce the fiscal impact on stakeholders.
1.7 Pumicelands RFA Safety and Health Policy
Pumicelands RFA has the legislated purpose of safeguarding life and property within its District. In achieving this purpose the Authority is committed to doing all that is practicable towards managing a safe work environment for its personnel (this includes: employees, contributing stakeholder staff and contractors, and volunteers) to reduce the incidents that cause fatalities and serious disablement. This will be achieved by all Pumicelands personnel applying the Authority’s “General Safety and Health Policy” and the Authority’s “Safety and Health Procedure in Responding to Fires”
PRFA General Safety and Health Policy
All Pumicelands RFA personnel (including: employees, contributing stakeholder staff and contractors, and volunteers) are to:
(a) Ensure the Authority’s operations comply with all relevant legislation, regulations, codes of practice, best practice guidelines, industry standards and the Authority’s own standards.
(b) Ensure the Authority’s operations do all that is practicable to comply with all Stakeholder hazard management plans, health and safety policies and procedures.
(c) Be appropriately trained and competent for their prescribed task.
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(d) Communicate identified hazards to all other personnel and others in the vicinity, taking all practicable steps to eliminate, isolate or minimise the exposure to any hazards deemed to be significant.
(e) Ensure that all personnel working in the Authority’s operations are made aware of the Authority’s Health and Safety policy and procedures.
(f) Ensure the prompt and accurate reporting and recording of all incidents and injuries, and attention to consequent recommendations and action requests.
(g) Segregate out incidents and injuries that could have resulted in fatality or serious disablement and focus investigation on these so that contributing factors and underlying causes are identified.
(h) Encourage consultation and participation of all personnel wherever practicable. Generally, safety and health should be an agenda item at every operational meeting of the Authority’s employees, officers and volunteers.
(i) Review and evaluate safety and health for continuous improvement
(j) Promote a strong safety culture throughout the Authority
PRFA Safety and Health Procedure in Responding to Fires
This procedure is also repeated in the PRFA Fire Response Plan (Part B of this Fire Plan).
Rural fire management can be dangerous. It often involves an emergency response dealing with multiple potential hazards that may not always be easy to predict depending on the situation. The Pumicelands RFA procedure to minimise safety and health risks in responding to fires currently has eight main elements:
1. MAINTAIN CLEAR PRIORITY
The clearly stated top priority of PRFA (stated in the Fire Response Plan) is the protection of life. This means that every person involved in a fire response should understand from their training and from briefings at the fire scene that: speedy response; the saving of buildings and property and vegetation; and fighting the fire itself; are of less importance than ensuring that no one gets seriously hurt.
2. ESTABLISH CLEAR COMMAND AND COMMUNICATIONS AS SOON AS POSSIBLE
Fire emergencies can be confusing, particularly in the early stages, when there is smoke and the terrain and access is unfamiliar, or when it is night time. If volatile fuels and high winds are also involved the situation can be very dangerous without order and control. For these reasons the first Rural Fire Officer or Crew Leader arriving is expected to take charge and establish communications with everyone at the fire as soon as possible.
3. APPOINT A SAFETY OFFICER
Normally the Safety Officer role will be part of the Incident Controller responsibilities at smaller Level 1 incidents. However for larger Levels 2 and 3 incidents, and especially wherever a CIMS team is deployed, the expectation is that a Safety Officer shall be appointed by the Incident Controller who shall have full access to the Incident Controller and all areas of operations.
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4. ENSURE TRAINING FOR TASK
PRFA believes that the best way for people at a fire to recognise hazards and minimise risks is through adequate training (and experience if possible) at all levels. It is the responsibility of everyone involved at a fire, from the PRFO to Crew Leaders to Firefighters themselves, to take all practicable steps to ensure that all the firefighting personnel in the various roles are fit for task.
5. USE THE “GREEN BOOK”
Every PRFA Crew Boss and above who responds to any PRFA fire is expected to have with them a copy of the Green “NRFA Rural Fire Managers Handbook”, which includes a section on Safety. The expectation is that this will be referred to and applied at all fires. In particular, the following points are identified for special focus by all:
(i) Safety is the personal responsibility of everyone – your own, your fellow firefighter and those you may supervise/manage. (ii) Safe use of vehicles – this is probably the major risk going to and from, and at fires. (iii) Proper briefings – every person on the fire ground shall receive a full briefing before being deployed at the fire. (iv) Unit 3285 – every person shall have this safety unit on the fire ground or be placed under the close supervision (buddied up) of someone who does. (v) PPE – every firefighter must have the NRFA approved personal protective equipment appropriate for their role. Front line fire fighters must have approved: boots, full length clothing, cotton underwear, helmets, goggles, gloves and earmuffs if using pumps. Wet weather gear must be used for handling chemicals and filling aircraft. (vi) Keep in Contact – nobody should work alone. Stay within visual and/or calling distance. Maintain radio communications. (vii) Clean Drinking Water – must be available on the fire line. (viii) Food and Rest Breaks – must be provided. (ix) Parked Vehicles on Access Ways – must not be parked blocking any track, must have the keys left in, should be parked pointing out. (x) LACES – Lookouts, Awareness/Anchor points, Communications, Escape Routes and Safety Zones must always be applied.
6. APPLY SUPERVISION OF HIGH RISK ACTIVITIES
In the initial stages of any fire emergency there is usually an element of confusion as resources arrive and organisation is established. In particular, there are three types of activities where supervision of the activity/situation should be applied as soon specific using appropriately experienced and trained staff. Activities are:
(i) Traffic Management – Wherever there is a major roadway or road traffic is judged likely to be significantly affected by smoke, firefighting resources or any other hazards on the road.
(ii) Aircraft Management – Wherever an aircraft is operating at a fire the landing area and filling point(s) should be placed under experienced/trained supervision as soon as practical.
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(iii) Machinery Management – If heavy machinery like bulldozers and excavators are deployed at a fire an experienced/trained supervisor should be placed in charge of operations.
7. GENERAL EXPECTATIONS
All Crew Bosses and fire management personnel at PRFA fires are expected to have current first aid certificates. Larger fires are expected to have a medical/welfare section within the Logistics Section of the CIMS team. Normal procedure for any serious harm accidents will be to Call 111 and notify Worksafe NZ. All incidents involving near- misses, injury, and damage must be reported.
8. USE HAZARD ASSESSMENT AND MANAGEMENT
The Health and Safety Employment Act 1992 prescribes the following three methods that PRFA personnel are expected to apply to manage hazards:
(i) Elimination involves totally getting rid of the hazard. (ii) Isolation involves reducing the hazard potential by removing the hazard from people or people from the hazard. (iii) Minimising involves reducing the effect of the hazard on people.
A generic ”Rural Fire Hazard Assessment and Management Plan” is included in the Fire Response Plan that identifies general hazards that may be encountered in dealing with People, Equipment and the Environment at fires and how the hazards may be managed. Note that because every fire situation will be different there may be specific hazards that are not identified and will require firefighters and their managers on the day to identify through training and experience.
1.8 The Pumicelands RFA Constitution
The Constitution Inclusive of Operating Rules is the main agreement that guides the operations of the Committee and Pumicelands RFA personnel: This document, along with a Memorandum of Understanding, has been signed by all the contributing stakeholders and the NZ Fire Service/National Rural Fire Authority. (The MOU is referred to in the Constitution and is mainly relevant because it specifies agreed stakeholder contributions towards the overall budget for administering the Authority.) A number of sections of the Constitution are directly relevant to Reduction, Readiness, Recovery and Response, and are shown in those sections of this Fire Plan.
The following are the more general sections of the Constitution Inclusive of Operating Rules that guide the Authority’s operations:
Section 2.2 Goals and Objectives
(a) The goal of the Authority is: To provide effective rural fire protection administration services in the District that meet statutory requirements.
(b) The objectives of the Authority are: (i) Reduction - Through effective administration, education, communication and use of technology. (ii) Readiness Through coordinated and focused training, increasing situational awareness and having appropriate resources.
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(iii) Response Through timely and effective communications and mobilisation of resources. (iv) Recovery Through predictable costs, post-event investigation and dissemination of findings.
(c) The Committee will operate as a collective in respect of infrastructure with fire equipment and related resources continuing to be owned by the Parties. However, the Parties agree that this position may be reviewed at a later date.
Section 3.1 Responsibilities and Duties of the Committee
(a) The Committee shall assume and carry out the responsibilities and duties, and exercise all the powers, of a Rural Fire Authority in accordance with the Act.
(b) The Committee shall operate primarily for the provision of rural fire management and will undertake charitable activities only to further this purpose.
(c) The Committee will approve the Fire Plan for the Rural Fire Authority.
(d) The Committee will determine, after consultation with Stakeholders, the Contributions and levies payable by Stakeholders. The annual contributions will be “fixed” for five years.
(e) The Committee will determine: (i) policy in relation to matters including research, training, health and safety, intellectual property and commercialisation; (ii) strategic planning for the Authority; (iii) overall direction, control and management of the Authority;
(f) The Committee will make such appointments as are provided for specifically in this Constitution and such appointments as are required to be made by the Authority under the Act or Regulations including: (i) the appointment of a Chairperson; (ii) the appointment of an Independent Committee Member; (iii) the appointment of a Secretary; (iv) the appointment of a PRFO; (v) the appointment of a Chartered Accountant for the purposes of complying with regulation 24 of the Regulations.
(g) The Committee will also: (i) Approve the annual budget; (ii) Approve a procurement policy, a policy on authorising expenditure and a policy on entering into contracts; (iii) Receive and consider reports and accounts; (iv) Monitor the performance of the Authority; (v) Communicate the results of the activities to the Stakeholders and the public; (vi) Determine the goals and objectives of the Authority; (vii) Approve the annual programmes it considers suitable after considering the recommendations from the PRFO or as otherwise determined; and (viii) Consider fundraising initiatives and the review of financial results.
Section 7.1 General Responsibilities of Contributing Stakeholders
(a) The Authority and Contributing Stakeholders must conform to national standards and audit requirements of the NRFA.
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(b) Each Contributing Stakeholder with primary responsibility for a zone or sector will be known as the “lead agency” for the zone or sector and must: (i) manage fire control measures in accordance with the Fire Plan of the Authority; (ii) operate a 24 hour contact/standby system in accordance with the Fire Plan; and (iii) apply its own call-out procedure to a fire within its zone according to the Fire Plan.
(c) Each Contributing Stakeholder must assist any other Contributing Stakeholder by providing fire crews and equipment when any Contributing Stakeholder asks for assistance at a wildfire. Assistance will be coordinated through the Authority’s Operating Co-ordinator.
(d) A Contributing Stakeholder will take initial firefighting action in another’s zone if its crew is first at the fire. A Contributing Stakeholder is responsible for issuing fire permits, investigating smoke reports, and initial response within its Contributing Stakeholder zone or of responsibility.
Section 8.1 Contributing Stakeholder Budget Responsibilities
(a) Every Contributing Stakeholder within Pumicelands Rural Fire Authority must budget for all costs of Fire Management on land in respect of which it is the banker.
(b) The operating and maintenance costs of personnel and equipment resources are the responsibility of the relevant Contributing Stakeholder that owns them or hires, borrows or is otherwise responsible for them.
Section 8.4 Single Fire Plan Updated Every Two Years
(a) The Authority will have a single Fire Plan that states the policy and procedures by which the Authority will operate in order to meet its statutory obligations as a Rural Fire Authority, in particular for Reduction, Readiness, Response and Recovery.
(b) In accordance with the provisions of the Act and Regulations, the Committee must update the Fire Plan every two years for approval by 1 October of that second year.
Section 8.6 Contributing Stakeholder Contributions to Zones Managed by Other Contributing Stakeholder
(a) A Contributing Stakeholder’s contribution to a zone managed by another Contributing Stakeholder may be cash or “in-kind”. The “in-kind” contributions will be allocated a cash value by the PRFO and may include: 1. fire equipment and facilities based within the zone (including depots); 2. staff availability for fire suppression (and training) based within the zone; 3. a fire operating budget covering fire related work in the zone; 4. staff to carry out some RFO work (e.g. permit issue as appropriate).
(b) Where the value of contributions is reasonably considered insufficient by the Chief Executive of the lead agency managing a zone and this is agreed by the PRFO, any deficit may be made up by a cash levy imposed on the inadequately Contributing Stakeholders within the zone.
(c) Where a Contributing Stakeholder is not the lead agency managing a zone but has assets in that zone, the Contributing Stakeholder will appoint at least one
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representative and point of contact who will co-ordinate that Contributing Stakeholder’s fire activities and participation in zone operations. (d) Urban townships and industrial sites not covered by an Urban Fire District will be excluded from any DOC or Forestry Zone. Examples are Kinleith, Waipa, Minginui, Raurimu, Tuai, Outdoor Pursuits Centre, Motuoapa, Oruatua, Te Rangiita, Hatepe, Waitetoko, Waitahanui, Tongariro and Rangipo Prisons, Omori, Kurutau, Pukawa, Tokaanu, Ruatahuna, Maungapohatu, Te Whaiti, Brunswick Park, Kinloch and other areas of urban expansion. Any fire protection for these locations will lie with the Territorial Authorities responsible for these rate-paying communities and the NZ Fire Service which has the required structural fire-fighting expertise.
Section 8.7 Alterations to Zone Boundaries
(a) Zone and sector boundaries will follow boundaries for commercial forest and DOC lands, except where it is more practicable for a Contributing Stakeholder to alter zone or sector boundaries. For example, a Contributing Stakeholder may agree to include land from another Contributing Stakeholder in its zone on a quid-pro-quo arrangement, or a Contributing Stakeholder may need a safety margin, or boundaries should more logically follow clear topographical features identifiable on the ground (rivers or roads). In these situations, the affected parties will negotiate a solution and submit that to the Committee for approval. However, if agreement is not reached, the PRFO will arbitrate and recommend to the Committee the best solution considering all factors, ensuring that the boundary is workable and not an unfair cost on the parties being affected by any proposal to alter the zone.
(b) A Contributing Stakeholder may need a fire safety margin in a locality of high risk or high value and the Contributing Stakeholder will want early notification of any fire in the vicinity. In this situation that Contributing Stakeholder will negotiate an arrangement with the lead agency of the zone. The Contributing Stakeholder will draw up a memorandum of understanding to record and reflect the arrangement. If necessary, the PRFO will facilitate or direct such an arrangement to ensure that it is workable and the lead agency is not financially disadvantaged.
Section 8.8 Zone Operations
(a) Each Contributing Stakeholder will be responsible for fire control measures in the zone or sector that it controls, and will carry out such measures in accordance with the Authority’s Fire Plan.
(b) The mechanisms by which operations will be run in zones may differ from zone to zone depending on the Parties involved and their particular situation. Generally, there will be an operating committee involving all the Contributing Stakeholders. They must meet at least quarterly. If the PRFO considers it necessary he/she may require meetings will occur and specify the frequency and Contributing Stakeholders participation at those meetings.
(c) Each zone will have one Zone Manager who will also be a Deputy PRFO appointed by the Committee and who will oversee and be the key point of contact for that zone. The Zone Manager may be an employee from the lead agency in the zone, or if there are several sectors in the zone representing multiple Contributing Stakeholders the Zone Manager may be from one of the Contributing Stakeholders that is willing to take on the wider zone management role. If agreement on a zone manager role cannot be reached by all Contributing Stakeholders in the zone the matter is to be referred to the Committee for resolution.
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Section 8.10 RFO Role in the Event of Zone Dysfunction
(a) The PRFO has statutory obligations. Generally, Contributing Stakeholders in each zone will collectively organise and manage their own business in a semi-autonomous manner. Provided there are reasonably harmonious relationships, performance criteria are met, essential standards are achieved and operations in the zone are run in a safe manner, the PRFO role shall be that of oversight, coordination and guidance in line with the Committee’s directions. Where the PRFO reasonably considers that relationships, performance, standards, or safety have become problematic to a point that the Fire Authority obligations may not be met, the PRFO must notify the Committee so that appropriate action can be taken by the Committee.
Section 8.11 Media Statements
(a) The Chairperson and PRFO will handle media statements and media enquiries relating to the Authority as required. Stakeholders will refer any Authority enquiries they receive from the media to the PRFO. A Contributing Stakeholder may maintain media contact and make statements on fire control business relevant to its organisation and its own land but the statements must be consistent with the overall position of the Authority. In its advertising and publicity promotions, a Contributing Stakeholder will identify itself as a Contributing Stakeholder of the Authority.
1.9 Zone Arrangements in the PRFA Constitution Inclusive of Operating Rules
Tongariro Zone (DOC)
(a) This Zone comprises two sectors based around Tongariro National Park and Kaimanawa Forest Park. (b) This zone includes “islands” of Taupo District Council land in the Kaimanawa and Desert Road locality in return for the Taupo District Council zone taking responsibility for all smaller DOC reserves elsewhere in the district that are not in the Plateau Forestry zone (the DOC reserves are mostly on the Western side of Lake Taupo). (c) This DOC zone also includes the large area of DOC National Park between Lakes Taupo and Rotoaira. (d) This zone also includes some small areas of commercial forestry. (e) DOC Resources at Turangi, Ruapehu, Ohakune and Taupo will be focused on protecting this zone.
Urewera Zone (DOC)
(a) This zone comprises two sectors based around Te Urewera National Park and Raukumara Conservation Park. (b) This zone includes all inland “islands” of Whakatane District Council and Opotiki District Council land except urban townships in return for the Eastern BOP Zone including all DOC coastal reserves. (c) This zone also includes relatively small areas of commercial forest around Minginui and Southern Kaingaroa and Waioeka Gorge in return for the Plateau Forestry Zone including responsibility for some areas of DOC land within that zone. (d) DOC resources at Murupara and Aniwaniwa are part of this zone. DOC resources at Opotiki, Whakatane and Hicks Bay will be shared jointly with this zone and the Eastern Bay of Plenty Zone. (e) An agreement will be developed whereby DOC resources at Gisborne (outside the Pumicelands RFD) will support the suppression of any fires in this zone, particularly in the Eastern regions of the Zone. Pumicelands Rural Fire Authority Fire Plan – 30 October 2015 19
Plateau Zone (Forestry)
(a) This zone consists of forestry Contributing Stakeholders and is divided into three sectors – NZ Forest Managers in the South, Kaingaroa Timberlands in the centre and a mix of owners in the North. (b) DOC has some areas of land around Lake Tarawera and other smaller locations within this zone, as do various Territorial Authorities (Taupo, Rotorua and Whakatane). DOC and the Territorial Authorities may need to be represented on any zone fire operating committee. (c) Each of the three sectors will have its own Contributing Stakeholder DPRFO and the Zone Manager will be one of the DPRFOs.
Tokoroa Zone (Forestry & TA)
(a) This zone consists of Taumata Plantations as a forestry Contributing Stakeholder and South Waikato District Council, who employ a common contractor for rural fire protection. (b) Some DOC lands are included, predominantly on the Eastern boundary of the zone, although it may not be essential that DOC sits on any zone fire operating committee. (c) The Zone Manager is a Contributing Stakeholder DPRFO.
Eastern Zone (TA).
(a) This zone is a territorial authority zone, possibly with two sectors based on Whakatane and Opotiki District Council boundaries. It is also supported by representatives from Kawerau District Council (who would be part of the Whakatane Sector), DOC and Forestry Contributing Stakeholders. (b) The Zone Manager is from one of the two main territorial authorities. (c) DOC resources at Opotiki, Whakatane and Hicks Bay are shared jointly with this zone and the DOC Te Urewera-Raukumara Zone. (d) This zone includes all DOC reserves in the coastal regions of Whakatane and Opotiki District Councils in return for the DOC zone including the “islands” of Whakatane and Opotiki District Council land in the Urewera and Raukumara and other inland localities. (e) This zone includes Motohora (Whale) Island and White Island. Motohora is a very high value DOC asset (flora, fauna, Maori and historic values) and also has a very high threat from fire. Motohora Island requires a year round total fire ban and other measures to protect the asset.
Rotorua Zone (TA)
(a) This zone is led by Rotorua District Council which will provide a DPRFO who will also be Zone Manager. (b) The zone includes a substantial number and area of DOC reserves and any operating committee will have a DOC representative and be strongly supported by DOC locally. (c) The DOC depot and resources based in Rotorua are within this zone. (d) The DOC Ngongotaha Regional Depot which services much of the Central North Island, is not part of the resources of this zone, although its resources may be called upon by the Authority in general. (e) Because the zone includes a substantial number of smaller commercial forest areas it is also expected that the operating committee will be strongly supported with one or more forestry representatives. (f) Forestry Contributing Stakeholders will include those managing commercial forests within the zone that previously formed part of Pumicelands RFA.
Pumicelands Rural Fire Authority Fire Plan – 30 October 2015 20
Taupo Zone (TA)
(a) This zone is led by Taupo District Council which provides a DPRFO who is also the Zone Manager. (b) Because the zone includes a substantial number and area of DOC reserves it is also expected that any operating committee will have a DOC representative and be strongly supported by DOC locally. (c) No DOC depot and resources will be considered part of this zone, although resources based in the DOC Tongariro-Kaimanawa Zone (at locations such as Taupo and Turangi) will be available to be called upon, particularly to suppress fires in any DOC reserves. (d) Because the zone includes a substantial number of smaller commercial forest areas it is also expected that any operating committee will be strongly supported with one or more forestry representatives. (e) Forestry Contributing Stakeholders will include those commercial forests within the zone that previously formed part of Pumicelands RFA.
Moana Zone (TA)
(a) This zone is led by the Western Bay of Plenty District Council which provides a DPRFO who is also the Zone Manager of fire control measures within. (b) This zone includes all the lands outside of urban fire districts within the Tauranga City Council and Western Bay of Plenty District Council as well as the offshore islands in the Bay of Plenty close to these Local Authorities including Mayor (Tuhua), and Motiti. (c) Some of the offshore islands are populated. There are fire suppression resources on the islands to protect life, property and vegetation. Mayor Island (Tuhua) has very high values for DOC (Maori, flora, fauna and historic values) and has a Prohibited Fire Season imposed all year. Matakana and Motiti islands have Restricted Fire Seasons imposed all year. (d) DOC resources in Tauranga, Te Aroha and the Bay of Plenty will be shared in dealing with fire matters on Mayor Island and in the Kaimai – Mamaku Ranges. (e) Commercial forestry resources within this zone will be protected by the forest owner and the resources of the previous Western Bay Moana Rural Fire Authority.
1.10 Other Agreements
Pumicelands RFA has the following agreements in place:
(a) Various old (but still operational) agreements between PRFA Contributing Stakeholders and the N.Z. Fire Service which is in accordance with Section 15 of the Forest & Rural Fires Act for the supply of firefighting services.
A Memorandum of Understanding between the Forestry Radio Network owners and Pumicelands Rural Fire Authority, that sets out the agreed principle and procedures (duties) for fire protection communications and associated works.
Specially Protected Areas
There are no specifically identified areas within Pumicelands Rural Fire District that are classed as Specially Protected Property under Section 6 of the Forest and Rural Fires Act 1977.
Pumicelands Rural Fire Authority Fire Plan – 30 October 2015 21
2. READINESS
2.1 General Pumicelands RFA Readiness Policy
It is the Authority’s policy that the potential for loss of human life, property and other values will be minimised through maintaining levels of readiness of resources to respond to fire incidents that will be determined by the Authority as appropriate to the levels of Threat. The levels of Threat will generally be dependent on the values and vegetation in Zones, and upon weather conditions that will influence risks of ignition and potential fire behaviour.
In general terms, determining levels of Threat and required Readiness levels will require:
i) Determining Fire Season status (e.g. Open, Restricted or Prohibited). ii) Determining current and forecast weather and Fire Danger levels. iii) Using the NZ Fire Danger Rating System, and the Build Up Index (BUI) of that system as “trigger points” for determining fire season status and for imposing any restrictions or closure of access or operations within the District.
The PRFO will be responsible to ensure that the readiness levels and procedures as set out in this Fire Plan are implemented.
2.2 Pumicelands RFA Policy Regarding Stakeholder Resourcing Levels
The policy is:
1. That until the Pumicelands RFA Committee determines otherwise, all Contributing Stakeholder organisations will have and maintain sufficient resources to protect their own assets relevant to the fire danger of the day (including extreme fire danger), and;
2. As a minimum through to July 2017, the levels of: trained firefighting personnel, firefighting equipment, rural fire management systems and other rural fire resources will be not less than what Contributing Stakeholders had as at July 2014.
3. Firefighting resources of Contributing Stakeholders as they existed at July 2014 should not normally to be deployed outside of their current Zones except in direct fire response to some extreme or critical situation.
This policy is based on the following points of agreement made between all the Contributing Stakeholders in the Memorandum of Understanding to establish Pumicelands RFD signed in July 2014, and in the Pumicelands RFA “Constitution Inclusive of Operating Rules” signed in July 2015.
Section 2 G of the MOU “General Understanding and Agreements”
The parties agree to continue to maintain the existing levels of fire management within their areas of jurisdiction (as Rural Fire authorities) until the official establishment of the Pumicelands Rural Fire District.
Pumicelands Rural Fire Authority Fire Plan – 30 October 2015 22
Section 8.2 of the Constitution “Response to Fires within and Outside of Zones”
(g) Each Contributing Stakeholder in each zone and sector needs to be sufficiently self- resourced to be able to provide an adequate response for the protection of their assets relevant to the fire danger of the day, including conditions where there is Extreme Fire Danger.
(h) The Committee will determine what are adequate resources for all zones within two years of the commencement of this Gazette Notice.
Section 8.3 of the Constitution “Deployment of Contributing Stakeholder Resources Outside of Zones in Situations Other Than in Direct Response to Fires (In situations of Extreme Fire Danger)”
(a) The PRFO or his/her deputies will only direct a Contributing Stakeholder to place its resources outside the Contributing Stakeholder’s own zone (or sector) if it is in direct response to a fire (or to cover for a fire elsewhere in the District). Any such direction should be considered in response to some extreme or critical situation. The clear understanding should always be that the Contributing Stakeholder’s resources are there primarily to protect the Contributing Stakeholders own assets.
(b) A Contributing Stakeholder may, if it chooses, deploy resources outside its zone (or the District) if it does not reduce its resource levels below the minimum determined by the Committee. If the resource level would be reduced below the minimum specified by the Committee it must have the prior written approval of the PRFO.
Section 8.5 of Constitution “Determining Contributing Stakeholder Resource Levels”
(a) For two years after the gazettal of the District, each Contributing Stakeholder must maintain, as a minimum, the level of fire resources it had prior to the gazettal, within the limitations of this Constitution.
(b) Within two years from gazettal of the District the Committee will determine and specify the minimum level of fire resources that each Contributing Stakeholder will provide in each zone and sector, sufficient for the Authority to meet its obligations. The Committee will also specify timeframes by which those minimum resource levels must reasonably be met. (The task will be overseen by the PRFO, and the Committee and the NRFA will determine the method to be used).
(c) Any Contributing Stakeholder can elect to hold resources at a level in excess of that determined by the Committee as the required minimum. Any excess resource so held cannot be accounted for by any other Contributing Stakeholder as a means of meeting its own resourcing obligations.
2.3 Fire Detection Processes
Records show that the greatest number of fires reported within the District are from human causes, e.g. deliberately lit, escaped permitted fires, in-forest operations etc. The detection and reporting of these and other fires will generally involve the following processes:
(a) Vehicle fires and other roadside fires are generally detected by members of the public who report the fire via the 111 Emergency System.
Pumicelands Rural Fire Authority Fire Plan – 30 October 2015 23
(b) Fires reported via the 111 system are initially responded to by the nearest available Fire Service Brigade and the report of fire is advised to the Rural Fire Authority by the Fire Service Com Centre.
(c) Commercial forest fires are generally detected by persons at the work site who are to report the fire via the Emergency Requirements Procedure as set out by the forest company. In some circumstances such fires may be reported via the 111 Emergency System.
(d) At certain times of the year and/or when fire danger reaches elevated levels, Fire lookouts will be manned, and aerial patrols and ground patrols carried out within commercial forests for the purposes of early detection of fires (as specified in this Fire Plan)
(e) During periods of elevated fire danger the PRFO instruct other measures to be put in place to assist in the early detection of fires.
2.4 Procedures for Monitoring Fire Weather Index
(a) Pumicelands RFA policy is to collect relevant weather data, monitor fire weather conditions and determine on a daily basis the level of fire danger using the New Zealand Fire Weather Index System (outlined next page)
(b) The PRFO will identify a network of local weather stations that are appropriate for the determination of fire danger levels for the District and will arrange for access to these.
(c) The PRFO will ensure that arrangements are set in place with Zone Managers for the daily monitoring and recording of fire weather and fire danger and for notification of appropriate Fire Weather Codes and Fire Behaviour Indices to key personnel each day.
(d) Weather data as at 12 noon NZ Standard Time (NZST) (1 p.m. Daylight Savings Time (DST) will be collected from the identified network of automatic weather stations daily. Manual readings will be taken as required. Fire Weather Index (FWI) information will be generated daily from this weather data.
(e) In the event that afternoon weather conditions change significantly from the 1.00 p.m. DST readings, hourly weather data will be collected via the automatic weather stations.
(f) During periods of elevated fire danger, a daily weather forecast will be obtained that provides a general weather outlook and expected wind strength, wind direction, air temperature and rainfall for the following 48 hours and a further 3 day extended outlook.
(g) Spot weather forecasts are to be obtained for prescribed burn operations or for such fires as may occur.
(h) The PRFO will ensure that arrangements are in place for monthly inspections, care and maintenance of weather stations owned by Contributing Stakeholders. Station owners will forward copies of monthly weather station check sheets to the PRFO. Weather stations shall be serviced annually during late winter so as to maintain availability during Spring, Summer and Autumn.
Pumicelands Rural Fire Authority Fire Plan – 30 October 2015 24
(i) Where weather stations are not available or are considered to be inappropriate for the area, the PRFO will consult with relevant organisations and prepare a justification for additional weather station capacity.
(j) Weather records must be kept for at least 10 years to enable seasonal comparisons and to compile fire danger classification information for researchers.
Pumicelands Rural Fire Authority Fire Plan – 30 October 2015 25
2.5 Outline of the NZ Fire Weather Index System
FFMC Fine Fuels Moisture Content: A numerical rating of moisture content of litter and other cured fine fuels. This code is an indicator of the relative ease of ignition and flammability of fine fuel. DMC Duff Moisture Content: A numerical rating of the average moisture content of loosely compacted organic layers of moderate depth. This code gives an indication of fuel consumption in moderate duff layers and medium sized wood material.
DC Drought Code: A numerical rating of average moisture content of deep, compact, organic layers. This code is a useful indicator of seasonal drought effects on forest fuels and amount of smouldering in deep duff layers and large logs. ISI Initial Spread Index: A numerical rating of the expected rate of fire spread. It combines the effects of wind and FFMC on rate of spread without the influence of variable quantities of fuel. BUI Build Up index: A numerical rating of the amount of fuel available for combustion that combines DMC and DC. FWI Fire Weather index: A numerical rating of fire intensity that combines ISI and BUI. It is suitable as general index of fire danger
Values for FFMC DMC DC ISI BUI FWI Fire Danger Ignition Rate of Fuel Fire Mop-Up Difficulty Classes Potential Spread Availability Intensity Low 0 - 74 0 - 20 0 - 100 0 - 4 0 - 15 0 - 3 Moderate 75 - 85 21 - 30 101 - 175 5 - 8 16 - 30 4 - 13 High 85 - 87 31 - 40 176 - 250 9 - 12 31 - 45 14 - 23 Very High 88 - 91 41 - 45 251 - 325 13 - 15 46 - 60 24 - 28 Extreme 92+ 46+ 326+ 16+ 61+ 29+
Pumicelands Rural Fire Authority Fire Plan – 30 October 2015 26
2.6 Procedures for Determining Levels of Readiness and Response from Weather Stations
Normally, unless directed otherwise by the PRFO, Zone Managers are responsible for setting the daily Readiness levels for their relevant sectors of the fire district each day. This means arranging the resources required for the relevant Fire Danger class for each sector and ensuring the resources are able to respond.
Normally, unless directed otherwise by the PRFO, all decisions concerning Readiness levels are to be based on FWI figures calculated each day. Weekend decisions will be made on the Friday, but can be revised on the day. Official weather forecasts supplied by the Meteorological service will be used for predictions, as required.
Standard procedure will be to primarily determine Fire Danger and associated Readiness levels based on BUI (Build-up Index) trigger points. However, this approach shall be taken as a guide rather than a rigid rule because conditions will vary across the District depending on fuel types and risk factors. For example, in areas where predominant fuel types are lighter fuels other Codes such as FFMC and ISI should be considered in determining Fire Danger and associated Readiness. Holiday periods or periods of prolonged drought may also influence decisions.
Unless agreed otherwise by the PRFO, each Zone or Sector Managers will use the calculated FWI figures from the following weather stations to establish which fire intensity class (danger level) is to operate for the day in their Zone or Sector.
Zone or Sector Weather stations and Lookouts
Moana (Tauranga) Use readings from Tauranga Aero and Rotoehu weather stations to determine readiness level. Eastern Use readings from Whakatane, Opotiki & Waihau Bay (Whakatane/Opotiki) weather stations to determine readiness level. Urewera (DOC) Use Galatea, Minginui, Opotiki, Waihau Bay and Tuai weather stations to determine readiness level (s) Tokoroa Use Athol weather station to determine readiness level. Tahorakuri and/or Taupo weather stations should be considered and may influence final readiness level. Rotorua Use readings from Rotorua Aero weather station to determine readiness level. Rainbow Lookout is used for this sector. Taupo Use readings from Taupo Aero, Tahorakuri and Matea to determine readiness levels. Plateau (North Sector) Use Tarawera and Rotoehu weather stations to determine readiness level. Tauranga weather station should be considered and may influence final readiness level. Edgecumbe (Putauaki) lookout is used for this sector. Plateau (Central Sector) Use Galatea, Goudies and Tahorakuri weather stations to determine readiness level. Taupo weather station should be considered and may influence final readiness level. Taupiri, Edgecumbe (Putauaki), Rainbow & Tauhara Lookouts are used for this sector. Plateau (Southern Sector) Use readings from Matea weather station to determine readiness levels. Wairango lookout is used for this sector. Tongariro (DOC) Use readings from Turangi, Waiouru, National Park and Whakapapa to determine readiness levels.
Pumicelands Rural Fire Authority Fire Plan – 30 October 2015 27
2.7 BUI Trigger Points to Guide Readiness Levels
Trigger READINESS ACTION TO BE TAKEN IN EACH ZONE Points
Low Fire 1 Outside of working hours a Duty Officer and First Response Officer will Danger both be available by pager and will respond to a fire call by pager, cell phone or radio within 10 minutes. (BUI 0- 2 During working hours the Zone must be able to respond to fire calls within 15) the same 10 minute timeframe. 3 The Pumicelands PRFO and DPRFOs/Zone managers will have a duty arrangement to also respond within 10 minutes of fire calls if required. 4 A Small Crew (2 persons) and Appliance/Smoke Chaser (may be a 4x4 for DOC) should aim to be despatched within 30 min with the objective of initial attack within 60 minutes. Moderate 1 Outside of working hours a Duty Officer and First Response Officer will Fire both be available by pager and will respond to a fire call by pager, cell Danger phone or radio within 10 minutes. BUI 2 During working hours the Zone must be able to respond to fire calls within (16-30) the same 10 minute timeframe. 3 The Pumicelands PRFO and DPRFOs/Zone managers will have a duty arrangement to also respond within 10 minutes of fire calls if required. 4 A Small Crew (2 persons) and Appliance/Smoke Chaser (may be a 4x4 ute for DOC) will be despatched within 20 min with the objective of initial attack within 60 minutes. 5 The Small Crew (2 persons) and Appliance/vehicle will be place on standby 1200-1800 hrs. 6 Forestry Fire Lookouts will be manned 1200-1800 hrs. 7 Forestry Radio Rooms at Rotorua and Athol will be manned 0700-1800 hrs (minimum). 8 The Forestry Radio Room at Rotorua will inform Trans Rail and request patrols on the Kawerau Line. 9 Forestry Zone Managers may open Fire Stations and may locate Appliances and Crews appropriate to work site locations as required and on weekends. High Fire 1 Outside of working hours a Duty Officer and First Response Officer will be Danger both be available by pager and will respond to a fire call by pager, cell phone or radio within 5 minutes. BUI 2 During working hours the Zone must be able to respond to fire calls within (31-45) the same 5 minute timeframe. 3 The Pumicelands PRFO and DPRFOs/Zone managers will have a duty arrangement to also respond within 5 minutes of fire calls if required. 4 A Small Crew (2 persons) and Appliance/Smoke Chaser (may be a 4x4 ute for DOC) will be despatched within 15 min with the objective of initial attack within 40 minutes. 5 The Small Crew (2 persons) and Appliance/vehicle will be place on standby 1100-1900 hrs. 6 The Zone Manager will notify key personnel (managers, staff, contractors, etc.) within the zone of the increasing fire danger 7 Fire Danger awareness through local media will be initiated where appropriate. 8 Permit issue conditions will be reviewed. 9 Forestry Fire Lookouts will be manned 1100-1900 hrs.
Pumicelands Rural Fire Authority Fire Plan – 30 October 2015 28
10 Forestry Radio Rooms at Rotorua and Athol will be manned 0700-1900 hrs (minimum) and will maintain up to date listings of key resources in forests (e.g. heavy machinery). 11 The Forestry Radio Room at Rotorua will inform Trans Rail and request patrols on the Kawerau Line. 12 Forestry Zone Managers will open Fire Stations and may locate Appliances and Crews appropriate to work site locations as required and on weekends. 13 Forestry Zone & Sector Managers will give consideration to patrolling worksites involving chainsaws, mowers and heavy machinery for 30 minutes after ceasation of work. 14 Forest access will be reviewed. Very 1 Outside of working hours a Duty Officer and First Response Officer will be High Fire both be available by pager and will respond to a fire call by pager, Danger cell phone or radio within 5 minutes. (BUI 46- 2 During working hours the Zone must be able to respond to fire calls within 60) the same 5 minute timeframe. 3 The Pumicelands PRFO and DPRFOs/Zone managers will have a duty arrangement to also respond within 5 minutes of fire calls if required. 4 A Crew (4 persons) and Appliance (may be a 4x4 for DOC) will be despatched within 10 min with the objective of initial attack within 30 minutes. 5 Two Crews (8 persons including 2 Crew Leaders) and an Appliance/vehicle will be placed on standby outside working hours and be available during work hours. 6 A helicopter will be placed on standby or be available within 30 minutes. 7 The Zone Manager will notify key personnel (managers, staff, contractors, etc.) within the zone of the Very High fire danger. 8 Fire Danger awareness through the media will be co-ordinated via the PRFO. 9 Permit issue conditions will be reviewed. 10 Additional Crews and other resources will be rostered on standby as considered necessary by Zone Managers. 11 Forestry Fire Lookouts will be manned 1000-2000 hrs. 12 Forestry Radio Rooms at Rotorua and Athol will be manned 0700-2000 hrs (as a minimum but may be longer if necessary) and will maintain up to date listings of key resources in forests (e.g. heavy machinery). 13 The Forestry Radio Room at Rotorua will inform Trans Rail and request patrols on the Kawerau Line 15 minutes behind trains. 14 Forestry Zone Managers will open Fire Stations and will locate Appliances and Initial Attack Crews at strategic locations as required and on weekends. 15 Forestry Zone & Sector Managers will consult with forestry managers to review hours of forest operations and implement patrols of worksites involving chainsaws, mowers and heavy machinery for 30 minutes after ceasation of work. 16 Forest access will be reviewed. 17 Additional patrols of major forest access routes and highways will be carried out in high risk areas. Aerial patrols will be considered. Extreme 1 Outside of working hours Duty Officer and First Response Officer Fire will be both be available by pager and will respond to a fire call by Danger pager, cell phone or radio IMMEDIATELY. BUI 2 During working hours the Zone must be able to respond to fire calls (61 plus) within the same immediate timeframe.
Pumicelands Rural Fire Authority Fire Plan – 30 October 2015 29
3 The Pumicelands PRFO and DPRFOs/Zone managers will have a duty arrangement to also respond immediately to fire calls if required. 4 A Crew (4 persons) and Appliance (may be 4x4 for DOC) will be despatched immediately with the objective of initial attack within 20 minutes. 5 Two Crews (8 persons including 2 Crew Leaders) and an Appliance/vehicle will be placed on immediate standby outside working hours and be immediately available during work hours. 6 A helicopter will be placed on immediate standby in Forestry Zones or be available within 20 minutes in non-forestry Zones. 7 Fire Fighting and CIMS personnel will be notified and their contacts and movements recorded so they can be called in at short notice. 8 The Zone Manager will notify and remind on a weekly basis all key personnel in the Zone (managers, staff, contractors, etc.) of the Extreme fire danger and measures that must be implemented. 9 Fire Danger awareness and publicity through the media will be co-ordinated via the PRFO. 10 An appropriate "Fire Ban" will be implemented using process agreed with the PRFO. Fire permit books will be withdrawn from RFOs and existing fire permits suspended. 11 Additional Crews and other resources will be rostered on standby as considered necessary by Zone Managers. 12 DOC Tongariro will notify the Main Trunk Line of Extreme risk and request patrols 15 minutes behind trains. 13 Forestry Fire Lookouts will be manned 0900-2100 hrs. 14 Forestry Radio Rooms at Rotorua and Athol will be manned 0700-2100 hrs (as a minimum but may be longer if necessary) and will maintain up to date listings of key resources in forests (e.g. heavy machinery). 15 The Forestry Radio Room at Rotorua will inform Trans Rail and request patrols on the Kawerau Line 15 minutes behind trains. 16 Forestry Zone Managers will open Fire Stations and will locate Appliances, Initial Attack Crews and Helicopters at strategic locations as required and on weekends. 17 Forest operations/activities will be reduced to "essential to the company only" (delay non-urgent operations). 18 Forestry Radio Rooms are to broadcast notice to all crews of the extreme fire danger and remind of the requirement to patrol of worksites involving chainsaws, mowers and heavy machinery for 30 minutes after ceasation of work. 19 Yellow Cards will be issued to all forestry/logging crews detailing "Pumicelands RFA Requirements for Forest Operations". 20 Forest access will be closed to all non-essential activities (e.g. hunting, firewood collection, etc.) with the aim of eliminating potential ignition sources. 21 Additional patrols of major forestry access routes and highways will be carried out in high risk areas. Aerial patrols will be considered. 22 Transporters and heavy machinery are to be placed on standby for forestry Zones. 23 Forestry Radio Rooms and Duty Officers will be briefed on who is authorised to activate "etx" and group pager alerts (and when these are used).
Pumicelands Rural Fire Authority Fire Plan – 30 October 2015 30 2.8 Overview of Forestry Zone Readiness Levels
Collect Weather Data from PRFA Weather Stations and Establish Fire Indices and Fire Danger Levels for Each Sector
LOW MODERATE HIGH VERY HIGH EXTREME FIRE FIRE DANGER FIRE DANGER FIRE DANGER FIRE DANGER DANGER (BUI 0- 15) (BUI 16-30) (BUI 31-45) (BUI 46-60) (BUI 61+)
Duty Officer and First Response Officers available 24hrs via pager
Radio Room Hours Extended Accordingly
Fire Contractors on Fire Contractors on Fire Contractors on Fire Contractors on Standby (Minimum 1 Standby (Minimum 2 Standby (Minimum 4 Standby (Minimum 4 Person)/Lookouts Persons)/ Lookouts Persons)/Lookouts Persons)/Lookouts 11am – 7pm 12pm – 6pm 10am – 8pm 9am – 9pm
Patrols around work sites Initial Attack Base at Fire Helicopters placed on considered stores or other strategic standby Patrols to start on Rail locations determined by lines Forest Company D/PRFO’S & PRFO Transporters & Heavy PRFO starts Fire Danger/ Machinery on Standby Prevention Media Awareness
Radio room records Forest Access permits Staff & Contractors locations of resources revised. Concessionaries notified of current fire e.g. heavy machinery may be restricted or danger cancelled
Public Forest access Reviewed High Risk operations maybe suspended. Work Hours restricted Airial patrols considered
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2.9 Other Readiness Procedures
Zone Duty Officers
(a) There will be a Duty Officer for each of the eight Zones of Pumicelands RFA Fire Authority. There will also be Duty Officers for each Sector of the Plateau Zone. In Territorial Authority-led Zones the Zone Manager will often be the Duty Officer.
(b) Duty Officers will receive Fire Calls and in the first instance will be the Fire Coordinators, coordinating (from their office or home) the initial response to the fire until such time they are relieved.
(c) A Zone Duty Officer will be appointed for each week during the full year to carry out emergency duties 24/7 and will ALWAYS be contactable by pager and radio or cellphone.
(d) When a Duty Officer is first assuming Duty at the start of each duty week, where appropriate they will collect the duty bag and familiarise themselves with the current and expected situation relating to Fire Danger levels, Readiness levels and any other information affecting the protection of the Sector, Zone and District.
(e) Zone Duty Officers will ensure their availability to coordinate fire emergencies within the timeframes specified for the respective Fire Danger levels in the Pumicelands Fire Plan.
(f) If at any time the Duty Officer is not able to meet this response time they must make arrangements for another approved person to act as Zone Duty Officer in their absence and notify the Zone Manager (and Forestry Radio Room if applicable).
(g) If a fire incident escalates the Zone Duty Officer will follow the procedures outlined in the Pumicelands RFA Fire Response Plan. These could include (but are not limited to): calling out the Zone Manager, other Company/Organisation staff, Operations Co- ordinator or the PRFO; and establishing a CIMS Team to manage the incident.
Zone First Response Officers
(a) A Zone First Response Officer will normally be rostered to work with the respective Zone Duty Officer and will normally be the person first despatched to the fire by the Duty Officer/Fire Coordinator. However, in theory, the First Response Officer could also be any Pumicelands Personnel (any Contributing Stakeholder staff, contractor or volunteer) who first responds to the scene of the fire. Ideally it will be a warranted Rural Fire Officer. However, it could also be a Fire Crew Leader or a supervisor/member of one of the stakeholder’s work crews or volunteers.
(b) The two initial tasks of a First Response Officer are; firstly, to investigate the fire and provide a Situation Report back to the Duty Officer/Fire Coordinator; and secondly, to initiate a safe initial response following the procedures outlined in the Pumicelands Fire Response Plan. Note that the priority is safety of the public and personnel. If the fire cannot be easily and safely contained the focus must be on ensuring safety until more resources arrive).
(c) A Rostered Zone First Response Officer must be available at all times required by the Zone Duty Officer to deal with fire emergencies after hours, ensuring they have pager and radio or phone contact with the Zone Duty Officer at all times.
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Pumicelands RFA Standby Policy
(a) Pumicelands RFA Personnel (e.g. staff and contractors from Contributing Stakeholder organisations) will be required to do standby after normal working hours when Fire Danger levels increase.
(b) When a person is placed on standby they MUST be contactable and available within the times specified in this Fire Plan for the specified Readiness level (or as otherwise specified by the Zone Manager). The methods of contact and availability may however vary depending on local arrangements (e.g. some organisations will have pager systems while others may require personnel to remain at home close to the phone).
(c) Standby requirements will be determined as early as possible by Zone Managers in consultation with Contributing Stakeholders in order to schedule personnel as required prior to weekends or holiday periods.
Forestry Radio Rooms and Forestry Duty Officers
(a) Pumicelands RFA has an agreement between the Forestry Contributing Stakeholders to access and use their radio telephone network and equipment for the Authority’s business.
(b) During the Fire Season Forestry Zone Managers will maintain regular contact with the Radio Rooms at Rotorua and Athol, and in doing so will endeavour to visit the Radio Room operators and the Radio Network Manager personally in order to familiarise each other with fire protection information for their Zone.
(c) The Forestry Zone Managers will ensure the Radio Room operator is advised what each daily Readiness Level is for the Sectors of their Zones by 11 am each day. This will enable the Radio Room operator to prepare and distribute the fire authority daily ‘Forestry Sector Readiness Summaries’.
(d) The Forestry Zone Managers will send roster names and dates to the Radio Room Operators for personnel that will be carrying out Forestry Zone Duty and First Response Officer duties
(e) During normal working hours each Forestry Zone will have a rostered nominated representative with the appropriate fire management skills to be readily contactable by the Radio Room and be available to direct radio room staff in performing the Radio Room functions in a fire emergency. This may involve going to the radio room, or as a minimum, being in direct contact with radio room staff to give such instructions as are necessary.
(f) The Zone Duty Officer is the first person who receives and actions a response to all fire notifications in their zone from the Com Centre, by pager or other means. This means the Zone Duty Officer is doing the job the Radio Room operator would initially do during normal hours until the duty officer contacts the radio room.
(g) After hours, if an incident escalates, the Zone Duty Officer will ‘call back’ the Radio Room operator to the Radio Room to open up and assist with duties for a fire incident. However doing that does not absolve the Zone Duty Officer of their responsibility to attend at the Radio Room and manage that fire incident.
(h) At any time when a fire incident in a Forestry Zone escalates beyond initial attack, the Forestry Zone Duty Officer will need to co-ordinate the fire Response through the Radio Room. This will mean following the procedures outlined in the Pumicelands
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RFA Fire Response Plan. It may include, (but is not limited to): attending at the Radio Room themselves or sending a suitably competent RFO to manage the incident, or ensuring a CIMS team is established for command and control of the incident at the Radio Room.
(i) A cache of hand-held portable radios will be held at Athol and Rotorua for emergency use.
Other Constraints During High to Extreme Fire Danger
(a) Access/Concessionaires: Permits for forest entry, hunting etc. should be reviewed daily, and should be restricted to being issued for the least number of days as absolutely necessary. Licences for events and/or concessions may need to be restricted or cancelled. Forest D/PRFO’s must monitor access requirements and restrict access as fire danger levels increase.
(b) BUI Exceeding 100: In the event of the Build-Up Index (BUI) value of the Fire Weather Index (FWI) System exceeding 100, the situation will be deemed to be critical. The PRFO and Deputies will consult directly with General Managers and Forest Managers to ensure the seriousness of the situation is known. Serious consideration will need to be given to the scale of continued forest operations when balanced with the risk of fire ignitions and potential significant loss of forest value. Levels of preparedness will need constant reviewing by the PRFO and managers. NOTE: This level is only likely to be reached under severe, prolonged drought conditions.
Other Factors that May be Considered Affecting Readiness
(a) Discretion following Rain: Following rain the Build-up index may remain high to extreme but the FFMC and/or DMC be reduced to low. In this case Zone Managers, in consultation with the PRFO, have the discretion to reduce the readiness levels which are based on the BUI. It should be noted that FMC (ignition potential) may increase rapidly following rain due to low humidity, high winds and temperatures.
(b) Outside the Advertised Fire Season: Outside the advertised fire season, (during winter months) fire readiness levels may be reduced from those specified in the Fire Plan at the discretion of the Zone Manger responsible for the Zone. However, Fire Weather must continue to be monitored daily, and Duty Officers and First Response Officers with associated pager systems continue to be maintained, monitored and tested weekly.
(c) During Hours of Darkness: Fire Standby and lookout times may be reduced at the discretion of the DPRFO if sunset occurs earlier than the readiness levels stand down times laid down in the fire plan.
Aerial Patrols
Aerial patrols may be used to assist with fire detection during periods of extreme fire danger. Fixed wing aircraft or helicopters as applicable, may be used. Rosters will be developed if patrols are to continue for some weeks. A communication kit, which includes a radio and maps of the fire district, will be taken on these patrols. Only staff familiar with the fire district are to carry out these patrols. However, the flights should be used as an opportunity to familiarise other staff with the Fire District.
Pagers
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Duty Officers and other key personnel will be issued with pagers to assist in emergency call- outs. Those people issued with pagers must ensure that they are operational at all times. Pagers will be tested at least weekly to ensure they are operating.
Notes for staff of Timberlands (TL), PF Olsen (PFO) and Hancock Forest Management Tiaki (HFMTia) Pager Users: An individual signal is a series of long beeps which notifies the receiver to contact Rotorua Radio Room when operating, or the Duty Officer after hours. The group call is short beeps in groups of four, which is the signal that the receiver is required for an emergency and must respond to their designated location or to the nearest sector fire station. When the emergency signal is transmitted, listen to the radio to receive details of the emergency. If close to the location, proceed directly to the emergency.
Notes for Hancock Forest Management Taumata (HFMTam) Pager Users: The Code definition for Hancock Forest Management pager user’s numeric or alpha-numeric pagers via the Fire Control Radio Room at Athol are:
Code 0 - Test Call Code 1 - Urgent, Call the Fire Control Radio Room at Athol Code 2 - Stand by Code 3 – Stand Down
2.10 Training
The Pumicelands RFA Training Policy is:
To have sufficient trained personnel at all levels available to carry out its function under the Act, of safeguarding life and property from rural fires in all areas of its District. This function is to be achieved:
i) Safely. ii) Effectively (considering different values of concern for Contributing Stakeholders). iii) Meeting compliance requirements (e.g. NRFA standards). iv) At minimum cost to Contributing Stakeholders.
2.11 NRFA Minimum Training Standard and Grant Funding
The National Rural Fire Authority (NRFA) Minimum Training Standard (V2B1Sept 2014) defines the minimum industry standards. It is Pumicelands RFA policy that all Pumicelands personnel from all Contributing Stakeholders must do all that is practicable to comply with this minimum standard. In particular this standard defines the following:
(a) Minimum training standards for: Fireground Entry (TS1), Firefighters (TS2), Pump Operators (TS2A) and Crew Leaders (TS3)
(b) There will be one Pump Operator for every four Firefighters and one Crew Leader for every five fire fighters..
(c) That Pumicelands RFA must provide documentation to assist NRFA auditing of the Standard that shall include an up-to-date training register listing all the RFA personnel in their positions, the records of unit standards (or equivalents) achieved, and records evidencing two year currency (defined as having either carried out their specific role at a fire or at a simulated exercises)
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Linked to the NRFA Standard above, the NRFA policy document “Grant Funding” (27 July 2011) states on page 15 that the NRFA grant funding approach will be for: “funding levels to reflect individual RFDs’ achievement of minimum standards…” and that, “ERFDs (enlarged rural fire districts – like Pumicelands) failing to meet minimum standards will receive less bulk funding…”
2.12 Objective of Training for Safe and Effective Operations
Compliance with NRFA standards to achieve funding is important but Pumicelands RFA considers that the higher priority objective for carrying out training is to be able to carry out operations safely and effectively. For these reasons the following additional standards will also be applied:
(a) It is the expectation that all Pumicelands personnel (e.g. employees and Contributing Stakeholder staff, contractors and volunteers) should have completed training for Unit 3285. However it is recognised that this may not always be achievable in which case the requirement shall be that the untrained person is directly buddied up on a one to one basis with someone who does have the training.
(b) Minimum training standards (unit standards or equivalents) with an expectation of two year currency (as appropriate) will also be applied for roles above the level of Crew Leader as follows:
Role Unit standards or equivalent required
Initial Attack/IC Level 1 Fire 3291, 3290, 14564, 22445 Sector Leader 3291, 3290, 14564, 22445 Aircraft Landing/Filling Supervisor 3291, 3293 Air Attack Supervisor 3291, 3293, 14563, 14564, 22445 Machinery Supervisor 3291, 3292, 14564 Traffic Management Supervisor Approved course Incident Controller Level 2 Fire 4648, 20396, 22445 Operations Manager 3291, 3290, 14564 or 4648, 20396, 22445 Planning Manager 4648, (4650 or experience in role) Logistics Manager 3299 and approved course Situation Unit 4648 and approved course Resources Unit 3299 and approved course Appliance Driver 3267 Rural Fire Officer 20398, 20399, 14564 Deputy Principal RFO RFO units, 20397, 4648 Incident Controller Level 3 Fire 3300, 4648, 20396, 22445
(c) The Pumicelands Fire Plan Resources directory will show the names of people (and their stakeholder organisations) who are trained for the above roles or expected to fill the above roles in each zone. Personal phone numbers and other contact details will not to be shown without the consent of the Contributing Stakeholder.
2.13 Target Numbers of Personnel to be Trained by Zone
The following table shows the minimum number of personnel who must be trained for the various roles (roughly equating to one shift based on an evaluation using the old NRFA Code of Practice). The optimum number to be trained for each zone will be double the numbers below (two shifts).
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ROLES (persons may not be
ALL Taupo
listed in more than one role) Moana
Plateau
Eastern
Rotorua
Tokoroa Urewera
Tongariro PRFA Staff PRFA
Fireground Entry (TS2) 7 7 7 5 5 21 5 7 64 Firefighter (TS2) 14 14 14 9 9 42 9 14 125 Pump Operators (TS2A) 3 3 3 2 2 9 2 3 27 Crew Leaders (TS3) 4 4 4 2 2 12 2 4 34 Initial Attack/IC Level 1 1 1 1 1 1 3 1 1 10 Sector Leader 1 1 1 1 1 3 1 1 10 Aircraft Landing Super. 1 1 1 1 1 3 1 1 10 Air Attack Supervisor 1 1 1 1 1 3 1 1 10 Machinery Supervisor 1 1 1 1 1 3 1 1 10 Traffic Man. Supervisor 1 1 1 1 1 3 1 1 10 Incident Cont. Level 2 Fire 1 1 1 1 1 3 1 1 1 11 Operations Manager 1 1 1 1 1 3 1 1 1 11 Planning Manager 1 1 1 1 1 3 1 1 1 11 Logistics Manager 1 1 1 1 1 3 1 1 10 Situation Unit 1 1 1 1 1 3 1 1 10 Resources Unit 1 1 1 1 1 3 1 1 1 11 TOTALS 40 40 40 30 30 120 30 40 4 374
OTHER FUNCTIONS
(persons doing the
functions below can also
ALL Taupo
be duel listed in any of Moana
Plateau
Eastern
Rotorua
Tokoroa Urewera Tongariro
the above roles) Staff PRFA Appliance Driver 3 3 3 2 2 9 0 2 0 24 Rural Fire Officer 3 3 3 2 2 9 3 3 0 28 Deputy Principal RFO 1 1 1 1 1 3 1 1 2 12 Incident Cont. Level 3 Fire 0 0 1 0 0 1 0 1 1 5
2.14 A Single Pumicelands RFA Training Database
The PRFO will maintain a fire training database for the Authority. This shall be for the purposes of auditing, managing safety and managing an annual training program.
This database shall show the following details for all Pumicelands personnel (e.g. all employees and Contributing Stakeholder staff, contractors and volunteers who are likely to be involved in rural fire management within the District):
Full name Birth date (to cross check NZQA records) NZQA number NZQA units achieved (or equivalents) Contributing Stakeholder Employer Pumicelands Zone Expected role(s) at a fire Training courses attended Specific fires attended
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Specific training exercises attended Last fitness test level and date where applicable (also requires knowledge of age)
For privacy reasons the database will be limited to Deputy PRFO/Zone Manager level, training providers, and for auditing (e.g. by the NRFA) or investigation purposes (e.g. H&S NZ). Information pertaining to individuals belonging to one Contributing Stakeholder must not be made freely available outside that Stakeholder organisation. The information is not to be made available to the public.
2.15 Quality Training at Minimum Costs
To achieve consistent quality of training and minimise costs to Stakeholders, the Pumicelands PRFO will work with a preferred training provider(s) to: organise an annual training program, organise individual courses, deliver and assess training, and enter data into records.
The ability to deliver quality training and minimise costs requires planning with a level of certainty. Courses that require certain numbers to be viable that then become non-viable due to no-shows undermine both the viability of the training provider and the ongoing ability of the Authority to deliver required training. Courses that have to be cancelled at the last moment due to late pull-outs are also costly and disruptive for all concerned.
For these reasons, it is the policy of the Authority that Contributing Stakeholder personnel who have said they will attend rural fire training courses must give three working days’ notice if they will not attend. If they fail to give notice or to attend without very good reason their Contributing Stakeholder organisation will be charged the full course fee.
2.16 Fire Control Documents and Maps
(a) Pumicelands RFA Fire Response Plan: All Offices, Depots, Supervisor Vehicles, Fire Appliances, and Designated Fire Trailers that are part of Pumicelands RFA must have an up-to-date copy of the Response Plan. This should include the Resources Directory for at least the Zone and the Forms Section (e.g. Fire Call Questionnaire, Initial Attack Checklist, Initial CIMS Organiser, DTRs & DTVRs, etc.).
(b) Pumicelands RFA Fire Admin Plan: All Offices that are part of Pumicelands RFA must have an up-to-date copy of the Fire Admin Plan (that includes this section on Readiness).
(c) Green “NRFA Rural Fire Management Handbook”: Every Pumicelands RFA Crew Leader and all CIMS Team Managers are expected to be issued with these Handbooks and have them at fires that they attend.
(d) Fire Fighting Maps. Each Zone shall have complete sets of 1:50,000 scale topographical maps available showing Zone boundaries and other relevant details suitable for fire suppression purposes. Copies are to be held by the Duty Officer, Local Contributing Stakeholder Offices, Zone Manager and PRFO (and the Forestry Radio Room where appropriate).
(e) Larger Boundary Maps. The PRFO will co-ordinate the production of maps showing Pumicelands RFA Zone boundaries and NZ Fire Service Zone boundaries. They will be made available to Zones electronically and in a larger scale hardcopy map (eg 1:250,000 scale).
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(f) Pre-planned Suppression Plans and Maps. Each Zone Manager shall undertake a Wildfire Threat Analysis process approved by the PRFO to identify localised areas where preplanning is required to manage high fire threats (e.g. areas of buildings or high value vegetation where there is high public usage and volatile fuels). Preplanning for managing these threats will be carried out by the Zone or Sector Manager and will require specific maps.
2.17 Pumicelands RFA VHF Radio Communications
(a) All Contributing Stakeholder supervision vehicles, fire appliances and contractors’ crew vehicles will be radio equipped.
(b) Contributing Landholders and Stakeholders will be responsible for allocating radio call signs for those users of VHF radios within their organisations. Where applicable these are to be listed next to relevant personnel and resources in the Resources Directory in the Pumicelands RFA Fire Response Plan.
(c) A VHF Radio Channel Plan covering all Contributing Stakeholders’ of Pumicelands RFA will be listed in the Resources Directory in the Pumicelands RFA Fire Response Plan.
(d) Radios must be tested weekly to ensure they are operating. If radios are defective they are to be repaired as soon as possible. In High Fire Danger conditions or greater repairs should be immediate
(e) When using the radio, the radio procedure as detailed in the relevant Contributing Stakeholder organisations policy must be used. Generally, the calling protocol is to call the radio call sign of the station you want to speak with first, followed by the radio call sign assigned to you, e.g. Athol from 618 (six-one-eight).
(f) When an emergency occurs all other radio users must stay off the channel and give priority to traffic concerned with the emergency. Note that Forestry Radio Rooms may take control of any or all channels during a serious fire emergency.
(g) Where radio reception or transmission blank spots are found the locations of these blank spots are to be reported to the Radio Operator.
2.18 Protective Clothing for Firefighting Operations
It is Pumicelands RFA policy that all personnel under the Pumicelands RFA jurisdiction must be suitably dressed, as defined by standards set by the National Rural Fire Authority, to take part in fire suppression or controlled burning. This includes:
Approved boots Approved ankle to wrist clothing/ fire resistant overalls. Approved safety helmet and neck protector or wool or fire resistant balaclava. Cotton underwear Eye protection Appropriate hearing protection when using pumps Where personnel are involved in loading water or firefighting chemicals into helicopter buckets or aircraft, appropriate protective and wet weather clothing is to be worn. Personnel involved in chainsaw operations will wear the required safety equipment for the task.
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2.19 Firefighting Equipment
(a) NRFA Standards to Apply: All equipment used, or that may be used, for rural fire suppression within Pumicelands Rural Fire District shall comply with any equipment standards specified by the National Rural Fire Authority (NRFA). For reasons of safety and operational effectiveness, no rural firefighting equipment belonging to any Pumicelands RFA Contributing Stakeholder that has not met NRFA testing and/or auditing standards is permitted by the Authority to be used at any fire under Pumicelands RFA jurisdiction.
(b) Auditing to Be Carried Out: All equipment used, or that may be used, for rural fire suppression within Pumicelands Rural Fire District shall be subject to audits by Pumicelands RFA and the NRFA. These audits may be twice yearly and will follow the “PRFA Fire Equipment Audit Workbook” (and NRFA auditing processes when required). If equipment fails audit it must be repaired or replaced. Any failed equipment that does not meet standard and cannot/will not be repaired must be permanently removed for safety reasons.
(c) Designated Fire Stations Only: All fire equipment that is used or may be used for rural fire fighting within the District is to be stored in separate fire stations/depots. These stations must be kept clean and orderly and shall be either a separate building or separate compartment and marked by a fire station sign outside. Non-fire equipment or fire equipment that does not meet NRFA standards must be removed so there is no chance it will interfere with or be used at fire operations. Although a fire station may be locked, arrangements must be made to ensure immediate access can be gained (i.e. keys must be available or use a combination lock, ensuring any alarms can be de-activated).
(d) Use of Designated Fire Equipment: Equipment used for firefighting within the District is not to be used for any purpose other than firefighting or training without first obtaining written approval from the Zone Manager or PRFO.
(e) No Illegal Modifications: No alterations or modifications are to be made to any fire equipment without acting on the recommendation of industry specialists and after consulting with the Zone Manager and PRFO.
(f) Personnel to be Correctly Trained to Use Fire Equipment: Personnel involved in firefighting are required to be trained in the correct use and operating procedures of all the fire equipment available for fire prevention, suppression and control.
(g) Equipment to Be Immediately Recommissioned: Following the use of fire equipment or appliances the equipment and appliances must be immediately recommissioned so it is available for further use at any incident.
(h) Zone Managers Are Accountable for All Zone Fire Equipment: Zone Managers shall oversee the location and be accountable for all fire equipment within the Zone. They shall ensure that all fire stations and fire equipment shall be maintained in operational order. They shall ensure that all equipment and appliances receive regular servicing and required testing, and that this is recorded in a manners approved by the PRFO.
(i) Monthly Checks: Zone Managers must arrange monthly and weekly checks of fire equipment as directed by the PRFO to ensure all vehicles and equipment are in operational condition throughout the year. Normal procedure is that all appliances and tankers will be run at least 20km and all pumps will be run for at least 10 minutes every month during the Fire Season and two monthly the rest of the year (unless
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otherwise agreed by the PRFO). In High Fire Danger conditions or above it is recommended that appliances should be run once a week.
(j) Repair Breakdowns: Any breakdowns or loss of equipment or vehicles must be reported immediately to the Zone managers who need to arrange repair or replacement as soon as reasonably practicable.
(k) Tool Kits: Every operational fire pump and fire appliance must have an appropriate tool kit stocked with appropriate tools.
(l) First Aid Kits: These are to be carried on all firefighting vehicles and designated fire trailers.
(m) Appliances, Smoke Chasers and Water Carriers: These are subject to the requirements of the Forest & Rural Fires Act and Transport Act, and therefore must be regularly checked for registration, certificate of fitness or warrant of fitness, and signage identification. The “PRFA Fire Equipment Audit Workbook” check-sheets will be used to ensure all appliances and water carriers meet the minimum specifications and requirements for their class as set out by the NRFA standards. Copies of all records of checks, tests, inspections and servicing of appliances and ancillary equipment will be kept by the Zone or Sector Managers.
(n) Pump Ownership: All pumps are to have ownership displayed on pump body and the asset number recorded.
(o) All Pumps to Be in Kits: Every operational fire pump shall have with it a kit of appropriate equipment necessary to operate the pump at a fire. For example, a kit should be some form of box, bag or container that includes: suction hose and filter, breachings, nozzles, hose packs or lengths, short hoses, priming equipment, spare fuel, tool kit, ear muffs, shovel, suppressant and applicator etc. The objective is that vital items are not left behind in a hurry.
(p) Fuel: All appliances and other fire response vehicles must be kept full of fuel and adequate spare fuel and lubricants must be stored at each fire station where there is no 24 hour access to external fuel supplies. All fire pumps and spare fuel containers for pumps must be kept at least 75% full and the fuel condition maintained in an operational state so that it will not damage the pump or otherwise cause operational failure. Standard colour coding for all Pumicelands RFA pump fuel tanks and fuel containers shall be as follows -
Red Straight petrol Regular unleaded Black 50:1 Regular unleaded Blue Two Stroke Fuel Regular unleaded Yellow Diesel
(q) Pump Testing: Pumps must be annually performance tested prior to the start of the restricted fire season, and meet the following minimum standards that shall then be recorded as the PRFO directs:
High Pressure Low Volume (Wajax) 1700 Kpa at 6000 RPM Low Pressure High Volume (Aqualite) 900 litres/min at 250 Kpa High Pressure Medium Volume 360 litres/min at 700 KPa High Pressure High Volume (Angus, Godiva) 900 litres/min at 700 KPa
(r) Firefighting Delivery Hose Testing: Hose must meet the specifications for the hose type. The standards have been set by the NRFA and can be found in the Forest & Rural Fire Fighting Equipment Catalogue. Generally, delivery hose must be
41
hydrostatically tested to 2100 kpa on delivery from the supplier. It shall then be hydrostatic pressure tested to the same level every two years and preferably tested after use at fires. A recording system is to be in place which identifies when each hose has been tested. Hose that no longer meets the hydrostatic tests but that is useable for other purposes, e.g. culvert cleaning, must be marked “Not for Fire Use” (and ideally should be removed from the fire station).
(s) Delivery Hose Colour Codes: Hose must be packed into colour coded packs, as follows:
Green Pack - 41 mm percolating (3 x 30 metre) Blue Pack - 41 mm non-percolating (3 x 30 metre) Red Pack - 25 mm non-percolating (4 x 30 metre)
(t) Hose Storage: Hose storage must be vermin proof, out of direct sunlight and dry (mildew proof). It can be a cupboard or racks, with the storage area preferably heated to 15oC to avoid damp conditions. If stored on appliances or trailers, rotate the hose between the cupboards or racks every six months to prevent dampness occurring.
(u) Handling Procedures for Delivery Hose After Use: Generally it should be normal practice to “pineapple” all hose (with the “female” end exposed) after it has been used in case the hose needs to be reused again in a fire emergency before it has been recommissioned. If a hose has failed the female end should be knotted and the hose sent for repair/replacement.
(v) Suction Hose Testing: These require testing every two years to 1500 KPa for suction hoses with footvalves and those without to 350 KPa., with ownership and test date recorded. Alternatively an air pressure test may be done instead of the hydrostatic pressure tests.
(w) Hydroblender Testing: These are to be hydrostatically pressure tested to 2100 kpa for one minute every five years, and records kept of the test.
(x) General Waterway Equipment: This covers a wide variety of items associated with the delivery of water. These include pump fittings, breechings, primers, hydro blenders, nozzles, carrying frames, etc. All waterway equipment is to washed, cleaned and dried prior to storage. Any waterway equipment that is unserviceable or damaged must be withdrawn from use and repaired.
(y) Dams: A variety of dams are available from 450 litres up to 40,000 litres. All dams should have the volume in litres stencilled on the outside. Correct use requires any dam laid out on a flat surface free of any object that could cause a puncture or tear, outlet valves in good working condition, and if fitted, tie downs secure. After use all dams shall be washed with clean water and thoroughly dried prior to storage.
(z) Cleaning of Pumps a Waterway Equipment: Pumps and waterway equipment (including hose) used in any condition that could lead to deterioration are to be flushed clean after use. Conditions could include, Class A foam, retardant, seawater, geothermal, etc.
(aa) Dydimo Precautions: Where pumps and waterway equipment has been used outside the District where there is a risk of contamination by the aquatic pest weed dydimo (such as deployment to the South Island) the equipment must be decontaminated using a detergent wash (e.g. a 5% mix of dishwashing liquid with water).
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(bb) CAA Rules for Aerial Equipment: Any aerial equipment used by Pumicelands RFA must be manufactured and operated to specifications and rules that meet Civil Aviation Rules. All strops on helibickets or helicopter equipment boxes (heliboxes) are required to have been load tested with a certification tag attached and records kept.
(cc) Helibuckets: These must be fitted with breakaway control line fittings and show volumes in litres marked on the outside of the bucket to assist in estimating weight load and facilitate the mixing of retardants or suppressants. Any air cylinders used as portable control units for the helibuckets are to be hydrostatically tested every five years and records kept of these tests. Any cylinder that has not got a current test date stamped on the outside of the cylinder must be withdrawn from service until a hydrostatic test is completed.
(dd) Heliboxes: External identification of the heliboxes is required to distinguish between the pump type (eg high-pressure, low volume Wajax pump set or a low pressure high volume Aqualite set). The gross laden weight is to be identified on the outside of the helibox to assist with payload estimates.
(ee) Hand tools: Those dedicated to firefighting will be inspected by the authority. They must be kept in fire stations, readily available, kept sharp, cleaned, oiled, with handles in top condition (not loose or cracked or with labels that cause blisters during use). Ideally the tools will be colour coded to identify ownership.
(ff) Firefighting Chemical Storage and Transport: All Retardants (e.g. Firetrol, Phoscheck) and Suppressants (e.g. Class A Foam) are to be stored and transported in a safe and environmentally acceptable manner. Where chemicals require manual handling they should be non-corrodible 20 litre containers or similar sized packages in powder form (e.g. 20 kg bags of Phoscheck). All Firetrol containers must be turned or mixed at least three monthly.
2.20 Fire Infrastructure
(a) Fire Protection Infrastructure: Pumicelands RFA requires Stakeholders be responsible, at their own cost, for the provision and maintenance of any fire protection infrastructure that is necessary for the protection of their lands and values. This includes; access, water supplies, aircraft support facilities, firebreaks, fuel breaks, etc. The Zone Manager will report to the PRFO and will consult with and make arrangements with the relevant Stakeholders for them to carry out the necessary inspections, maintenance work or other action.
(b) Access Roads: Access roads in forestry, DOC and rural areas should be sign posted with clearly legible signs and kept in a state negotiable by heavy fire appliances. Encroaching vegetation that potentially blocks access should to be cut back and overhanging branches cleared. On narrow roads, suitable vehicle turnarounds should be formed and maintained. Named dead-end roads should be signposted with a “No Exit” sign.
(c) Fire Fighting Water Supplies: Designated water supply points, including tanks, dams and access points into rivers, lakes and streams etc shall be shown on Contributing Stakeholder maps and sign posted from the nearest road showing their direction. These water points shall be kept in a well-maintained and cleared state and, where possible, adequate space will be maintained for appliance and water carrier turnarounds. All tanks and dams provided as firefighting purposes should be kept filled to at least 80% of their capacity at all times. Wherever practicable, helipads will be developed alongside major water points and consideration given to developing
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suitable sites with space for direct aerial filling. It is also recommended that pumping sites or platforms are to be no more than 3 metres above or 2 metres away from the water. Utility vehicle access to the pumping site will be formed wherever possible. (d) Airstrips and Helipads: All permanent aircraft facilities need to be inspected for suitability prior to the fire season. Temporary facilities that are specifically established for fire suppression need to address safety requirements with respect to aircraft landing and take-off clearances and for minimisation of environmental impacts that could result from the use of Suppressants or Retardants. The following are recommended points to address and/or rectify for all aircraft landing areas:
Landing and take-off clearances (remove obstructing trees) Water supply Spillage catchment areas and bunds
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3. REDUCTION
3.1 Pumicelands RFA Constitution Inclusive of Operating Rules Relating to Reduction
Section 8.9 Permit Issue and Open, Restricted and Prohibited Seasons – Within and Across Zones
(a) The PRFO must coordinate appropriate fire season status, permit issue requirements, and other fire protection measures across the District using the New Zealand Fire Danger Rating System. (b) The period between the first day of October in any one year and the 30th day of April in the following year (both days inclusive) will be the period of any restricted fire season declared in the District unless the PRFO varies this by public notice. (c) The PRFO, in consultation with Zone Managers, will declare Open, Restricted or Prohibited Fire Seasons as required, separately or combined across zones and sectors within the District. It will also remain possible to implement these seasons or other measures for specific localities as specified by the Forest and Rural Fires Act 1977. (d) In zones where DOC is the lead agency, DOC may continue to apply year round Restricted Seasons as specified by the Forest and Rural Fires Act 1977. In zones where DOC is not the lead agency DOC will work with the other zone Contributing Stakeholders and the PRFO to determine appropriate and workable arrangements. (e) Initially, for up to the first two years after gazettal of the District, it is expected that all zones and sectors will generally continue with the status quo, issuing fire permits as required using the local systems and resources in place at the date of gazettal. (f) In the longer term, the District will develop a single system that will be cost-effective and simple for the public and Contributing Stakeholders to use.
3.2 General Pumicelands RFA Fire Reduction Strategy
Under the Forest and Rural Fires Act, Pumicelands RFA is required to safeguard life and property through the “reduction” (prevention and restriction) of fires in forest and rural areas. More specifically, under the Forest and Rural Fire Regulations, the Authority is required to include in its Fire Plan policies and procedures to reduce the likelihood and consequences of fires in its District. These policies and procedures must include hazard and risk management strategies, fire prevention planning and public education activities.
Generally, Pumicelands RFA’s strategy to manage risk and hazard is based on two procedures:
1. General Monitoring of Weather Conditions 2. Wildfire Threat Analysis
3.3 Pumicelands RFA General Monitoring of Weather Conditions for Reduction Purposes
As weather conditions become hotter and drier both Fire Risk and Fire Hazard will increase. Fire Risk relates to the risk of a fire starting. Fire Hazard relates to the sort of fire behaviour that can be expected. Weather conditions will however vary across Zones within the District. General measures to plan and manage for varying Fire Risk and Fire Hazard across Zones, and educate the public, will include:
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(a) A Fire Prevention Culture: It is the responsibility of all Pumicelands RFA personnel to prevent the occurrence of fires. This includes all Contributing Stakeholder staff, contractors and volunteers. It is also the responsibility of people holding access permits.
(b) Fire Seasons: The Pumiceland RFA policy to generally implement Open, Restricted or Prohibited fire seasons based on Forest Fire Danger Rating System data derived from the monitoring of fire weather conditions through an effective system of local weather stations. Generally, a restricted fire season shall be declared from 1 October to 30 April the following year inclusive, but may be extended if fire danger conditions so warrant. All fires in the open air, in rural areas, during the restricted fire season shall be required to have a fire permit (this excludes gas fired barbecues and DOC approved campfires).
(c) Fire Awareness and Education: The Pumicelands RFA policy of encouraging community and stakeholder awareness of the threat of fire and of the responsible use of fire throughout the District. This shall be accomplished by a range of measures co- ordinated through the PRFO but carried out by individual stakeholders and Zone Managers. These measures will include: direct notification of stakeholder management, signage, media campaigns, and other appropriate awareness and education approaches deemed to be cost-effective.
(d) Signage System: Using an effective and up to date system of signage approved by the PRFO. These signs shall include Fire Danger Indicator Signs and will notify the public, stakeholders and landowners of local fire danger conditions and any restrictions or prohibitions.
(e) Fire Prohibitions and Restrictions: The giving of Fire Danger warnings and Restricting or prohibiting: access, burning, and other activities or operations under certain high fire threat conditions. (The effect of a Fire Ban can be implemented under either Section 20 or 21 of the Forest and Rural Fires Act.)
(f) Permits to Light Fires: Using suitably qualified Rural Fire Officers to issue permits to burn, dependent on the Fire Season and other conditions, and to ensure compliance with legislation.
(g) Burn Plans: Requiring prescribed burn plans for land clearing burn offs, which will include: systematic identification hazards and values, statement of conditions and resources for light up, fire breaks and other protective measures, etc.
(h) Forestry Operations Measures: The PRFO through the Forestry Contributing Stakeholders ensuring that measures for ignition safety within the District and in forestry operations are known and complied with. These will include:
(i) fire prevention education for those carrying out operations in plantation forest areas, (ii) identification of likely ignition locations and activities, (iii) declaration of controls relating to ignition locations and activities, (iv) auditing of fire equipment requirements for operations being conducted in plantation forest areas.
(i) Compliance: Maintaining policies for enforcement and cost recovery appropriate to support Public compliance.
(j) Readiness Levels: Maintaining levels of Readiness appropriate to the Fire Danger in the various Zones to restrict the likelihood and consequences of any wild fires.
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(k) Other Actions: Any variations or additions to the above measures as agreed by or directed by the PRFO after consultation with affected Contributing Stakeholders.
3.4 Pumicelands RFA Use of Wildfire Threat Analysis
Fire Threat consists of three elements:
1. Fire Risk – the potential for a fire to be ignited. 2. Fire Hazard – the potential for a fire to burn (fire behaviour). 3. Values at Stake – Life, property, commercial crops, conservation etc.
If the Values, Hazard and Risk are all high in a locality then the Fire Threat will certainly be high (an example of this may be a housing settlement located in an area of scrub). However, just one or two of the components can also constitute a high fire threat. For instance, high levels of human activity will increase the risk of wildfire ignitions.
A process of Wildfire Threat Analysis that evaluates Fire Risk, Fire Hazard and Values at Stake, will be used to identify areas and situations of highest threat, to plan and implement measures to manage for localised fire risk and hazard, and to assist educate the public. The measures will include:
(a) Reduction of Fire Risk: A common understanding is that “humans cause fires”. Reduction of Fire Risk may therefore be achieved by measures such as limiting access and operations in certain areas and/or at certain times.
(b) Reduction of Vegetation Hazards: Requesting the landholder or stakeholder that has responsibility for an identified hazard to carry out: fuel reduction, fire breaking, the development of defensible spaces and other measures where appropriate in order to reduce the hazard. This could also include requesting the landholder or stakeholder to undertake fuel reduction operations on an adjoining property at minimal or no cost to the adjoining landowner.
(c) Building Register: Identifying and registering hazardous buildings that require NZ Fire Service pre-suppression plans. This register should be updated annually by each Zone Manager.
(d) HIT Plans: “High Initial Threat Plans” (also known as Pre-Determined Tactical Response Plans) should be prepared for locations or circumstances where the highest threats have been identified in each Zone. HIT Plans may include site specific plans to reduce fire threats to values. The Plans may also enable a rapid and effective response to minimise the consequences of any fire starting.
(e) Analysis of Trends: The PRFO will ensure that details of all fires are reported and recorded in a Pumicelands RFA database in order to identify fire locations, any trends and other information (e.g. causes, weather patterns) that may assist in the reduction of Fire Threat.
(f) Other Reduction Measures: Appropriate localised fire prevention planning, public education and other measures to reduce the Fire Threat, as agreed and/or directed by the PRFO.
3.5 Pumicelands RFA Policy for the Issue of Fire Permits
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The aim of issuing permits is to control the use of fire within the District so that the risk of fire escape and any threat to adjoining values is minimised. The policy is to permit the use of fire within the Fire District in accordance with the following provisions. (a) Fire Permits are to be issued by authorised warranted Rural Fire Officers only. RFOs must have units 14564 (Fire Environment), 20398 (Issue Fire Permits) and 20399 (DKO Legislation), unless dispensation is given by the PRFO.
(b) Inspections and administration related to the issue of fire permits to the Public will not be charged for.
(c) Fire permit requests should be addressed within three business working days from the time of request to the time of a issuing or declining to issue the permit.
(d) On completion of issuing a fire permit, the issuing RFO will return a copy of the completed fire permit form to the Zone Manager who will maintain an up to date readily available file and register of the permits issued in that Zone. This file should be available to the Zone Duty Officer.
(e) The Zone Manager will also input a copy of the details of each fire permit issued into the Pumicelands RFA database within one working day.
(f) The issue of fire permits during any period that fire restrictions are in place is subject to an evaluation of current and forecasted fire danger conditions by the issuing RFO or Zone Manager (or the PRFO).
(g) It must be stated on all Pumicelands RFA fire permits that the Forest and Rural Fires Act (1977) section 23 (3) (a) specifies: “No fire shall be lit while a strong wind is blowing or when conditions (including predicted weather conditions) are such that the fire is likely to spread beyond the limits of the land or other property in respect of which the permit is issued.”
(h) It must also be stated on Pumicelands RFA fire permits that the Forest and Rural Fires Act (1977) section 23 (3) (b) specifies: “The permit shall be deemed suspended during such time as any warning (of a prohibition or fire ban) under section 20 or order under section 21 is in force; and the permittee shall, immediately before lighting the fire, reasonably confirm that no such warning or order is currently in force.”
(i) Other conditions must be written on the permit at the time of issue. These may prescribe, for example:
That certain equipment and/or assistance must be available at the permitted fire; That the fire shall be lit only when certain weather conditions apply; That the fire shall be conducted and/or lit up in a certain way; A written weather forecast for at least the next 48 hours may be required from the Met Service prior to the commencement of a burn. (Forecast costs to be the responsibility of the landholder) That the Zone Manager is to be informed of the exact day and time at which the fire is to be lit, before it is lit. (A contact phone number is to be shown on the permit for this purpose.)
(j) Generally, issuing of fire permits during a restricted fire period will be reviewed when Build-Up Index (BUI) values of 45 are reached. Fire permits will be cancelled in conjunction with a Prohibited Fire Season being declared, or when Extreme Fire Danger levels are experienced. The PRFO also has the authority to invoke fire permit cancellation and fire prohibitions outside of these parameters.
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(k) A pre-issue inspection of all land clearing areas is to be made to investigate site conditions and ensure that firebreaks and other reduction measures are adequate. Such fires are subject to the preparation and approval of a Prescribed Burn Plan prior to the issue of a fire permit.
(l) Fires for clearing heaped slash and rubbish are subject to a site inspection by a RFO prior to issue of a fire permit.
(m) Fire permits will be issued for the use of household incinerators during the declared restricted fire season. Such permits will be suspended during periods of fire prohibition or extreme fire danger.
(n) Applications for a Special Fire Permit during a period of fire prohibition will be considered under the provisions of the Forest and Rural Fires legislation. Only the PRFO can issue a Special Fire Permit.
(o) Provided life and property will be safeguarded, the Authority cannot withhold issuing a permit to burn for environmental or smoke nuisance reasons. If there are environmental concerns these should be addressed through reference to the appropriate local council or regional council.
3.6 Pumicelands RFA Policy for DOC Authorised Campfires
Department of Conservation (DOC) staff will generally discourage the lighting of fires in open air other than when using gas cookers or approved permanent fireplaces. However, it is recognised that campfires will continue to be lit on DOC lands. Under the Forest and Rural fires Act, section 2 in the interpretation for “open air” (d), Pumicelands RFA authorises the lighting of campfires without permits provided the campfire meets the following conditions:
(i) It is for the purposes of camping, cooking, comfort or warmth. (ii) It is not within three meters of any tree or any place under overhanging vegetation; and (iii) It is not within three meters of any log or any dry vegetation; and (iv) It is not lit unless and until the ground surface within three meters of the site of the fire has been cleared of all combustible material; and (v) It is not lit where notices and advertising are present which prohibit the lighting of fires or specify that fires may only be lit in other types of receptacle or place; (vi) It is not lit during a prohibition on lighting fires (under s20 and s21 of the Act); (vii) It is not lit in conditions where wind or other factors may cause the fire to escape. (viii) It is fully extinguished before the person(s) who lit the fire leave the site.
3.7 Policy of Identification of Hazardous Buildings in Rural Areas
In order to mitigate the hazards and risks associated with commercial and industrial buildings within rural areas, the Authority shall on an annual basis formally seek details of any new or modified buildings that meet the criteria below. This information will then be provided to the NZ Fire Service has an up to date register of all commercial and industrial structures that fall within the following categories:
(a) Places of assembly for more than 50 people (b) Places of employment for more than 10 people (c) Accommodation for more than 5 paying guests or tenants (other than in a household unit)
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(d) Commercial or industrial buildings used for manufacture or storage or processing including any facility containing hazardous or flammable substances held for any purpose (e) High life risk buildings – special occupancies providing care to the very young, very old or the disabled but not including household units.
The NZ Fire Service once provided with that information will, within one month, undertake Building Risk Assessments of all or some buildings contained within that register, as they deem necessary.
3.8 Pumicelands RFA Fire Signage Policy
Appropriate signs are to be erected as necessary for public information and awareness. Importantly, the Zone Manager will ensure that arrangements are in place for the following:
(i) fire danger indicator signs are erected and maintained up to date at predetermined locations that will provide the travelling public with easily seen fire danger information (ii) installation of signs that indicate the boundaries of the Fire District (iii) erection of fire prohibition signs and other signs as may be deemed pertinent to fire awareness as necessary (iv) regular cleaning and maintenance of all fire signs
The PRFO will have oversight of all signage. The costs of maintenance and management of fire signs is the responsibility of the Contributing Stakeholders in each zone.
3.9 Firebreak Guidelines
Peripheral Firebreaks around Plantation Forests
For external firebreaks around plantation forests where the adjoining area is: Fern or scrub or cutover native bush or other combustible material, the width of the break is recommended to be 20 metres. Clear grassland - at least 5 metres. Area of water less than 20 metres wide – clear extra area to give a 20 metre width.
Public Road Firebreaks
Highways - 20 metres either side of the road centre line. Other Public Roads - 15 metres either side of the road centre line. A minimum width of 5 metres should exist between any part of the road reserve used by vehicles - e.g. parking areas - and the tree edge.
Maintenance of Firebreaks
Firebreaks need to be kept free of flammable material. This can be achieved by carrying out appropriate vegetation management operations. For example, bare earth firebreaks should be disced to eliminate fire spread. Green firebreaks should be mown at frequent intervals to reduce dry grass and other vegetation that may rapidly carry a fire to the forest edge (and render the firebreak counter-productive).
Firebreaks as Access
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Where practicable firebreaks will be constructed so as to provide access for four-wheel drive vehicles at least.
Internal Firebreaks
Where permanent internal firebreaks are planned, it is recommended these should be located at natural features, such as ridges, to enhance fire stopping. On flat terrain firebreaks formed parallel to the prevailing wind are more effective than those at right angles to the wind. It is the responsibility of Zone Managers to communicate with Contributing Stakeholders to ensure that internal fire breaks are maintained.
Firebreaks Adjacent to Structures
Where flammable vegetation is near structures, landholders are recommended to remove fuel and establish a defensible space, to the following dimensions and locations.
Flat land (< 10o slope) - 25 metres all around Sloping land (> 10o slope) - 10m uphill; 15m side; 30m downhill
3.10 PRFA Policy for Public Entry to Commercial Forests
(a) Public access to commercial forests is not permitted without a permit. This restriction also applies to vehicles used on private forest roads.
(b) The use of caravans or camping is only allowed at approved locations. Open fires are prohibited at all times. Permits can be obtained to use gas burners for cooking except when a prohibited fire season is declared.
(c) Access permits are only issued at certain forest company locations. These offices have the policy on issue of permits; any queries on the interpretation of the policy should be referred to the Forest Company.
(d) Stickers will be supplied for all permitted vehicles using the forest, to assist with security.
(e) When a prohibited fire season has been declared, public access will be reviewed. Access to areas of high risk will be limited or closed.
(f) Keys to the forest are controlled by the relevant Forest Company.
3.11 Pumicelands RFA Policy for Forest Operations
The following measures will be applied for all forest operations and vehicles involved in forest operations. Operations and vehicles will be inspected periodically by Rural Fire Officers as directed by the Zone Manager or PRFO. Where any deficiency is found that forest operation will be stopped or the vehicle forbidden from the forest until the deficiency is rectified to the satisfaction of the Zone Manager or the PRFO.
A. GENERAL REQUIREMENTS
Reporting of Fires: All fires, regardless of size or type or how they start, which occur within forest estates must be reported to the local Fire Control/Radio Room by the fastest means possible or by calling 111.
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Forest Access: All forest access will require an entry permit specifying the activity to be carried out.
Driving Requirements: “Lights On” in forests at all times when travelling. All national road rules apply within forest estates, as do local forest company road safety policies.
High Fire Danger: During periods of high fire danger, restrictions on activities or operations may be imposed, as deemed necessary by Pumicelands Rural Fire Authority and the Forest Companies.
Smoking: Smoking in the forest is only permitted in cleared spaces such as roads, cleared firebreaks, landings, skid sites, and vehicles.
Cooking Apparatus: Open fires for billy boiling and the use of themettes is strictly forbidden. Gas cooking apparatus can be approved for use by obtaining a fire permit and must be used in cleared areas only.
Water Supplies: All faults, damage, necessary repairs and opportunities to develop and improve water supplies are to be reported to the local Forest Companies.
B. FIRE EQUIPMENT TO BE CARRIED FOR 12 MONTHS OF THE YEAR
All operators, suppliers and staff will ensure that all the equipment specified is to be kept in good order at the actual operation and ready for immediate use for fire suppression.
Short Handled Shovels (where these are referred to below) The dimensions that are acceptable for short handled shovels. A minimum blade width of 20 cm, a minimum blade depth of 30 cm, and a minimum total shovel length of 100 cm (1 metre).
Cars, Utilities, Motorbikes and All-Terrain Vehicles (regularly involved with or associated with forest operations) 1 shovel (long or short handle) 1 x 900 gram dry powder fire extinguisher or larger capacity
Crew up to six persons (non-chainsaw crew) 1 long handle shovel per person 1 pair fire protective overalls and 1 hard hat per person
Crews with 7 or more persons (non-chainsaw crews) 1 long handle shovel per person 1 knapsack pump 20 litres water (in container or non-spill knapsack) 1 pair fire protective overalls and 1 hard hat per person
Waste Thinning Crew Operations 1 long handle shovel per person 2 knapsack pumps 20 litres water per knapsack pump (in containers or non-spill knapsacks) 1 x 340 gram dry powder fire extinguisher per saw (carried on operator’s belt or with fuel cans) 1 pair fire protective overalls and 1 hard hat per person
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Harvesting Crew Operations (includes production thinning) 1 long handle shovel per person 2 knapsack pumps 20 litres water per knapsack pump (in containers or non-spill knapsacks) 1 x 340 gram dry powder fire extinguisher per saw (carried on operator’s belt or with fuel cans) 1 x hard hat per person
Heavy Trucks, Heavy Machinery Transporters, Gang Transport Vehicles, and all vehicles carrying diesel, petrol, kerosene, LPG fuel or flammable chemicals (excludes vehicle fuel tank) 1 shovel (long or short handle) 1 x 2 kg extinguisher or larger capacity (2 x 900 gram acceptable but less effective)
Bell Loggers*, Excavators, Graders, Log Loaders, Motor Scrapers, Mowing Tractors, Front End Loaders, Tractors, Skidders, Haulers, Off-Highway Logging Trucks 1 x shovel (long or short handle) 1 x 2 kg extinguisher or larger capacity (2 x 900 gram acceptable but less effective) 1 x 9 litres water or foam (minimum) under pressure * For Bell Loggers, the 9L extinguisher need not be on the machine, but must be within the immediate work area.
Welding, Gas Cutting, Grinding Operations 1 long handle shovel 1 x knapsack pump 20 litres water minimum (in a container or knapsack) 1 x 2 kg extinguisher or larger capacity (2 x 900 gram acceptable but less effective)
Obtain a Fire Permit to carry out the operation. Only on log landings or in a cleared area. Notify Fire Control/Radio Room at start and completion of operation. Follow patrol and reporting requirements as laid down in the Fire Plan.
C. REQUIREMENTS FOR CHAINSAW OPERATIONS IN THE FOREST
These requirements shall apply to the use of chainsaws for whatever purpose within the forest.
Refuelling: Starting: No smoking Move away from fuelling area Let saw cool Clean up spilled fuel Place saw on bare dirt or stump Clean saw Avoid spillage Have extinguisher handy
Using: Maintenance: Do not use saw if overheating Use recommended fuel mix Do not use saw if backfiring Do not run engine lean Clear around tree before felling Clean motor daily Check for embers after cutting Clean muffler regularly Keep chain sharp Rectify burnt out or damaged mufflers immediately
D. REQUIREMENTS FOR MACHINERY OPERATIONS IN THE FOREST
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(Applies to Bell Loggers, Excavators, Graders, Log Loaders, Motor Scrapers, Mowing Tractors, Front End Loaders, Tractors, Skidders, Haulers, Off-Highway Logging Trucks/Long Stem Trucks etc.)
All equipment will have protective guards to exclude debris etc. Side screen and fly mesh screen or similar to cover motor. Sumps cleaned regularly. Keep batteries and cables clean and secure. Keep engine compartment and sump clear of debris. Wash out regularly. Watch for fuel leaks. Any modifications are to ensure fire safety.
E. WORK AREA PATROLLING
When requested by the Zone Manager, PRFO or the Forest Company, the person responsible for each forest operation shall arrange effective and diligent patrols of the worksite to be carried out for a period of not less than half an hour following the completion of work for that day. The patrols are required to follow the inspection guidelines below:
Machinery Inspection Guidelines: Inspect all machines. Ensure machines are parked in a cleared area, e.g. landings, skid sites, etc. Check around manifold, sump and under floorboards for smoulders. Check that batteries are isolated. Check that fire extinguishers are full and in good working condition. Clean off all loose leaves or pine needles.
Worksite Inspection Guidelines: No smoking during patrol period. Check log landings and cutover areas for smoulders. Pay particular attention to areas where chainsaws have been used and where hauler ropes have been running. Carry out patrols with diligence.
3.12 Pumiceland RFA Policy for the Management of Tree Harvesting Debris and Residues at Log Landings
The following requirements are the required specifications of the Fire Authority. a) Log landings to be managed so that no combustible material shall -
(i) be spread or heaped so that any part of the material is more than 3 metres higher than the ground level at any point within 8 metres of that part; or (ii) have in any direction a slope steeper than 30 degrees. b) Branches, bark, slovens and other offcuts, and any other material cleared from log landings will be compacted and capped with a minimum of one metre of clay or other inert soil when the depth of the material reaches a maximum of three metres. c) Log landing dumps will not contain any oils, filters, wire rope or other metal waste.
54 d) Where it is deemed appropriate by the PRFO or D/PRFO’S, adequate bare dirt firebreaks may be required to be formed to protect adjacent forest or areas of flammable vegetation. e) It is recommended Forest Owners keep records of “Super-Skid” log landing dumps on their Fire Control maps in the Fire Control Offices, and that a register of these is kept.
Note: The intent of these procedures is to reduce the chance of spontaneous ignition of organic material that is pushed off, or otherwise removed from and disposed of, log landings. This means that such organic material shall not be heaped or stacked more than 3 metres in depth from the top of the material to the ground underneath. The material must then be compacted and capped with at least one metre of clay or clean soil that contains no organic matter whatsoever. Where material is disposed of over a bank or down a hill these requirements must still be met. This may require the building of earth side or end walls.
3.13 Pumicelands RFA Policy for the Management of Sawdust, Bark and Refuse Dump Areas
The following requirements are the required specifications of the Fire Authority. a) Sawdust, bark and rubbish dumps to be managed so that no combustible material shall
(i) be spread or heaped so that any part of the material is more than 3 metres higher than the ground level at any point within 8 metres of that part; or (ii) have in any direction a slope steeper than 30 degrees. b) Rubbish and bark dumps will be compacted and capped with a minimum of 0.3 metres of clay or other inert soil when the height of the heap reaches three metres. c) Bark dumps will not contain any wire rope or other metal waste or large pieces of solid wood or timber. d) Rubbish dumps and sawdust and bark heaps will have adequate bare dirt firebreaks against any forest or flammable vegetation areas. e) It is recommended dumps are to be identified on the Forest Company Fire Control maps in the Fire Control Office. f) It is recommended a register of rubbish and bark dumps and sawdust heaps is to be kept by Forest Companies at the Fire Control Offices.
3.14 Pumicelands RFA Policy for the Management of Ash Refuse Dumps
Ash refuse from mill heat plants may be dumped at approved and managed dumps within the district provided that: a) Ash is completely extinguished by thorough wetting down with water prior to transporting to the dump area.
55 b) Ash is dumped in prepared pits. c) Ash heaps never exceed the height of pit edges. d) Adequate bare dirt firebreaks surround any ash dump. e) It is recommended dumps are to be identified on the Forests Company Fire Control maps in the Fire Control Office. f) It is recommended a register of ash refuse dumps is to be kept by the Forestry companies at the Fire Control Offices.
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3.15 Pumicelands RFA Policy for the Management of Fire Pits
Fire pits for burning refuse of any kind should be located and established to the standards required under section 54 of the Forest and Rural Fires Regulations, 2005.
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4. RECOVERY
4.1 The Constitution Regarding Fire Suppression Costs
Section 5.5 Recovery of Fire Suppression Costs
(a) The Contributing Stakeholders must fund the fire suppression activities of the Authority and pay any invoice presented by another Contributing Stakeholder for any fire that originates on the following categories of land, until such time as a claim can be recovered directly off the landowner from the Rural Fire Fighting Fund (if the claim is recoverable):
(i) For fires originating on land administered by DOC, DOC will be responsible (act as “banker”). (ii) For fires originating on a Contributing Stakeholder’s commercial or exotic forest land the respective forestry Contributing Stakeholder will be responsible (act as “banker”). (iii) For fires originating on any other land, the relevant Territorial Authority will be responsible (act as “banker”).
(b) A Contributing Stakeholder who is funding suppression activities under sub clause (a) is responsible for where applicable completing a claim on the Rural Fire Fighting Fund with the assistance of the PRFO.
(c) Where there is a difference between any claim made on the Rural Fire Fighting Fund and the actual amount reimbursed that shortfall must be borne by the Contributing Stakeholder making the claim.
(d) A Contributing Stakeholder must invoice for actual and reasonable costs for undertaking any fire suppression activity on land where another Contributing Stakeholder is the banker.
(e) The Committee may from time to time determine charge-out rates for hiring equipment and personnel for fire suppression activities within the District that are different from those provided by the NRFA.
(f) If any costs or portion of costs or excess cannot be recovered, the banker (not the Authority) will carry and cover those costs.
(g) The Authority may make any claim for the recovery of costs associated with the control, restriction, suppression or extinction of fire pursuant to section 43 of the Act.
(h) The PRFO will lodge eligible claims against the Rural Fire Fighting Fund pursuant to section 46B of the Fire Service Act 1975 on behalf of the Authority and the Contributing Stakeholder.
(i) Section 46 of the Act may be used to recover fire suppression costs by way of a levy on any organisation or person affected or who could have been affected by a fire within the District.
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(j) A Contributing Stakeholder which is responsible for land where a fire originates must bear the costs associated with any prosecution action and direct recovery. However, the PRFO must recommend action that will best secure the recovery of Contributing Stakeholder funds.
4.2 Records of Fires
There needs to be a record sent to Pumicelands RFA HQ at 19 Biak Street, Rotorua, of every known wildfire and every known unpermitted fire in a Restricted or Prohibited Fire Season. For fires only attended by the NZ Fire Service a SMS Incident Report is sufficient. For every fire involving Pumicelands personnel (e.g. Contributing Stakeholders staff or contractors or volunteers) a Pumicelands RFA Fire Report (Form 11 in the Pumicelands RFA Fire Response Plan) needs to be completed by the Duty Officer (or Zone Manager) and sent to Pumicelands HQ within 24 hours of the fire being “controlled” (ie. the fire is contained and generally mopped up but may not be declared out). Also note that a fire investigation file does not replace the fire reporting process.
4.3 Fire Investigation
(a) Pumicelands RFA policy is to seek to determine the origin, cause, and any person(s) responsible for causing fires that occur within the District.
(b) Fires are required to be investigated where:
(i) There is to be a claim on the National Rural Fire Fighting Fund. (ii) Cost recovery is being considered. (iii) There is negligence on the part of any person or party. (iv) The fire(s) is suspicious (possible arsons).
(c) Any investigations should commence as early as possible from the time the fire is detected to best ensure a successful outcome to the investigation.
(d) Investigation requires the services of a skilled fire scene investigator who will both meet the documentation requirements of the NRFA and be competent in producing investigation reports to a standard of proof that is deemed acceptable as evidence in a court of law.
(e) Incident Controllers will need to obtain the services of such a person who is competently qualified, and designate that person solely for the task of investigating the fire, providing the assistance that is requested by the investigator.
(f) The National Rural Fire Authority has a register of Specialist Fire Investigators. Because of the limited number of such personnel, it may be necessary for Incident Controllers to seek the services of a trained investigator externally from fire authorities in other regions.
(g) An investigator will be requested to advise the Incident Controller where the preliminary survey/ investigation indicate the fire cause is suspicious, and the police need to be informed. Where the fire is suspicious the Incident Controller and Investigator will liaise early with the police. The Incident Controller will establish from
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police what their level of involvement will be and whether the matter is to become a criminal investigation with possible prosecution under the Crimes Act or legislation other than the Forest & Rural Fires Act. Once police confirm they will be commencing their own criminal investigations the Fire Investigator will assist police with the fire scene investigation as required
(h) In some cases it may be necessary to obtain the services of outside experts, e.g. electrical, mechanical, machinery or aircraft etc., to assist in determining and proving cause
(i) The fire investigator will hand the investigation report/file to the PRFO Pumicelands RFA. No copies of any reports or file documentation will be made or given out without approval from the PRFO.
(j) The documentation for a fire investigation may include:
(i) A report that details how the investigation was carried out, identifies the area of origin and probable point of ignition, if known, identifies the probable cause or possible causes, identifies the land tenure, and includes any recommendations as to prosecution or cost recovery, if applicable. (ii) Witness statements and/or job sheets. (iii) Copies of relevant correspondence, e.g. letters from police. (iv) Documentary evidence which may include copies of fire permits, fire log, record of fire report, public fire notices, media reports, topo maps, etc. (v) A sketch plan of the fire scene. (vi) A copy of a 1:50,000 topo map showing the point or origin. (vii) A booklet of photographs. (viii) Experts’ reports.
4.4 Post Fire Investigation
(a) The fire investigation may be ongoing; details may remain confidential for a period of time. In some cases the outcome of investigations may not be available in time for the fire debrief.
(b) The process of fire investigation is not to halt the claim for cost recovery through the National Rural Fire Fighting Fund. The claim process is to proceed as normal in order for the Authority to recover costs of fire suppression.
(c) In cases where there has been or will be a claim on the National Rural Fire Fighting Fund and suppression costs paid to the Authority, the PRFO will send a full copy of the investigation file to the Manager Rural Fire - NFRA.
(d) It is the PRFO’s responsibility to decide if prosecutions under the Forest & Rural Fires Act should proceed or whether other options are appropriate. Successful cost recovery action without prosecution may be sufficient.
(e) If a claim for suppression costs is made on the National Rural Fire Fighting Fund, one condition under Section 46 of the Fire Service Act is that the Fire Service Commission (as fund administrators), together with the Fire Authority, may initiate cost recovery action in criminal cases, and cases of negligence or failure to observe
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fire permit conditions. Thus there may be an obligation on the Authority to participate with the NRFA in court action to recover costs.
4.5 Fire Debriefs and Operational Reviews
A Fire Debrief is an internal assessment by a Rural Fire Authority of a fire in its District carried out under the procedure developed by the NRFA under Section 14A of the Fire Service Act.
The objectives of a debrief are to:
(i) Learn from the fire event and improve systems where necessary. (ii) Report on events with any recommendations as may be necessary. (iii) To identify areas of concern regarding health, safety and fire fighter welfare.
It is Pumicelands RFA policy is that a debrief of each significant fire attended by the Authority will be carried out. A “significant” fire is where:
(i) a claim is made on the National Rural Fire Fighting Fund, (ii) there is significant injury to fire fighters or public, (iii) there are significant operational shortcomings or unforeseen events, (iv) the PRFO believes that valuable learnings and/or improvements can be made from holding a debrief.
The format for debriefs will follow the NRFA format which is shown in the Pumicelands RFA Fire Response Plan as Form 12: PRFA Fire Debrief Format.
An Operational Review may be carried out for a major fire. This is an independent assessment of the fire carried out under the procedures developed by the NRFA under section 14A of the Fire Service Act 1975.
4.6 Cost Recovery and Prosecution
It is Pumicelands RFA policy to consider prosecution where there is clear evidence of negligence with respect to breach of fire permit conditions or where there is deliberate contravention of the provisions of the Forest and Rural Fires legislation.
4.7 Fire Site Rehabilitation Procedures
As soon as practicable after a fire is declared safe the Incident Controller or Zone Manager shall arrange for an assessment of the fire site to determine what, if any, rehabilitation measures need to be taken. The following must be considered and action taken as necessary:
(i) Repairs to soil disturbance or exposure as a result of access track or fire control line construction. (ii) Closure of temporary access tracks no longer required for fire control operations
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(iii) Drainage control work on temporary access tracks and constructed fire control lines. (iv) Removal of soil and vegetation deposited in streams or wetlands as a result of firefighting provided this can be achieved without a resultant increase in environmental disturbance. (v) Collection and removal of litter, plastic containers etc. associated with fire operations.
Where significant fire damage has occurred, the PRFO will ensure that arrangements are made for a site inspection and a damage report, where applicable, to be prepared. This report is to identify whether site rehabilitation is required under the requirements of the Resource Management Act and any assets that might be salvaged, repaired or replaced.
Fire site rehabilitation is work attributable with fire suppression, i.e. it is work that is the result of fire damage or as a result of damage done during suppression operations. Costs of fire site rehabilitation are costs that will be included with fire suppression operational costs, which are recoverable. In the first instance such costs will be borne by the contributing landholder or stakeholder whose land has been involved or has been under threat.